Digitized  by  the  Internet  Archive 

in  2007  with  funding  from 

Microsoft  Corporation 


http://www.archive.org/details/americanpostalseOOmelirich 


THE  AMERICAN  POSTAL  SERVICE 


History  of  the  Postal  Service  from  the 
Earliest  Times 


The  American   System  Described  with  Full   Details 

of  Operation 


A  Fund  of  Interesting  Information  upon  All  Postal  Subjects 


•  ••  •  •  •  • 

•  •  %•  •  •  • 


'•  •    •  •• 


By 
LOUIS  MELIUS 
Washington,  D.  C. 


Second  Edition  Revised  and  Enlarged 
Copyright  1917  Louis  Melius 


•  •  •    • 


MATIONAL  OAPITAL  PRESS,  INC.,  WASHINQTON,  O.  C. 


Postmaster  General  Burleson 


Biographical  Sketches  of  the  Postmaster   General  and  His 
Four  Assistants 

Albert  Sidney  Burleson,  of  Austin,  Tex.,  Postmaster  General,  was  born  June  7, 
1863,  at  San  Marcos,  Tex.;  was  educated  at  Agricultural  and  Mechanical  College 
of  Texas,  Baylor  University  (of  Waco),  and  University  of  Texas.  Was  admitted 
to  the  bar  in  1884;  was  Assistant  City  Attorney  of  Austin  in  1885,  '86,  '87,  '88,  '89 
and  '90;  was  appointed  by  the  Governor  of  Texas,  Attorney  of  the  Twenty-Sixth 
Judicial  District  in  1891;  was  elected  to  said  office,  1892,  '94  and  '96;  was  elected  to 
the  56th,  57th,  58th,  59th,  60th,  61st,  62d,  and  63d  Congresses;  appointed  Postmaster 
General  March  4,  1913,  and  confirmed  March  6,  1913. 


John  C.  Koons,  First  Assistant  Postmaster  General,  entered  the  service  as  a 
Railway  Postal  Clerk;  was  transferred  to  Washington  and  made  Post  Office  Inspector, 
subsequently  made  Chief  of  the  Division  of  Salaries  and  Allowances  and  member  of 
the  Parcel  Post  Commission,  in  which  latter  connection  his  services  were  considered 
of  especial  value  and  importance.  Appointed  Chief  Post  Office  Inspector  and  upon 
the  resignation  of  the  late  First  Assistant  Postmaster  General,  Daniel  C.  Roper, 
was  named  to  succeed  him.     His  legal  residence  is  in  Carroll  Co.,  Md. 

Otto  Praeger,  Second  Assistant  Postmaster  General,  was  born  in  Victoria,  Tex., 
1871.  Legal  residence,  San  Antonio,  Tex.  Took  a  course  of  instruction  in  the 
University  of  Texas  and  was  a  student  on  political  economy  under  David  F.  Houston 
now  Secretary  of  Agriculture.  Engaged  in  the  newspaper  business  at  San  Antonio 
in  1887 — San  Antonio  Light  and  San  Antonio  Express;  was  for  a  time  city  clerk  of 
said  city;  was  engaged  in  newspaper  work  as  Washington  correspondent  when 
appointed  Postmaster  of  Washington,  D.  C,  and  in  August,  1915,  was  appointed 
Second  Assistant  to  succeed  Hon.  Joseph  Stewart. 

Alexander  Monroe  Dockery,  Third  Assistant  Postmaster  General,  is  a  native  of 
Missouri,  born  in  Daviess  County,  educated  at  Macon  Academy;  studied  medicine, 
graduated  and  practiced  it  for  a  while  but  later  engaged  in  the  banking  business. 
Served  in  Congress  from  March  3,  1883,  to  March  3,  1899.  Member  of  Committee  of 
Appropriations,  twelve  years;  Committee  Post  Offices  and  Post  Roads,  four  years; 
Governor  of  Missouri  from  1901  to  1905;  was  author  of  the  bill  extending  the  special 
delivery  system  to  all  post  offices;  also  extending  free  delivery  service  to  small 
cities;  advocated  the  first  appropriation  for  rural  delivery.  Chairman  of  the  com- 
mission which  bore  his  name,  constituted  by  Congress  for  administrative  reforms  in 
the  conduct  of  public  business,  and  author  of  the  act  creating  a  new  accounting  system 
for  the  Treasury  Department  and  many  other  public  measures  which  have  made  his 
name  familiar  to  the  public  and  political  life  of  the  country. 

James  I.  Blakslee,  Fourth  Assistant  Postmaster  General,  was  born  at  Mauch 
Chunk,  Pa.,  December  17,  1870.  Public  school  education,  supplemented  with 
special  courses  at  Bethlehem  Preparatory  School,  Cheltenham  Military  Academy 
and  High  School,  Pottstown,  Pa.;  was  connected  with  the  Lehigh  Valley  and  Penn- 
sylvania railroads  as  telegraph  operator  and  assistant  yardmaster;  Lieutenant,  Com- 
pany E,  Eighth  Regiment,  National  Guards,  1897;  commissioned  same  rank  and 
regiment,  U.  S.  Volunteers,  and  appointed  quartermaster  and  commissary.  Reserve 
Hospital  Corps,  U.  S.  Army,  during  the  Spanish-American  War.  Removed  to 
Lehighton  in  1899.  Chairman  Democratic  Committee  of  Carbon  County,  1905. 
Assemblyman,  Pennsylvania  Legislature,  1907-09  term,  and  subsequently  made 
Secretary  Democratic  State  Committee,  where  his  organizing  ability  won  him 
national  recognition. 


PREFACE 

This  little  work  on  postal  affairs  aims  to  familiarize  postal 
employes  and  others  with  the  operations  of  the  Post  Office  Depart- 
ment in  all  its  varied  and  numerous  details.  No  attempt  was  made 
to  cover  the  wide  field  of  postal  activity  and  inquiry  for  which  a 
much  larger  book  and  much  greater  space  would  be  required. 
It  is  simply  meant  to  be  a  book  of  reference,  a  sort  of  hand-book 
on  postal  subjects  for  busy  people  who  may  not  care  to  read 
lengthy  accounts  or  stories  which  a  few  paragraphs  might  suf- 
ficiently explain,  or  care  to  wrestle  with  columns  of  figures  which 
are  best  given  in  official  reports  and  chiefly  valuable  to  public 
men  for  legislative  purposes,  for  comparison  and  survey. 

All  necessary  postal  knowledge  of  immediate  public  interest 
is  herein  set  forth  in  such  compact  shape  as  to  acquaint  the  reader 
with  what  he  might  want  to  know,  or  direct  his  inquiry  to  sources 
of  wider  information  if  the  desire  was  not  satisfied  with  the  refer- 
ence thereto  which  this  work  might  afford.  In  general  it  will  be 
found  amply  sufficient  for  all  ordinary  purpose  as  the  scope  of 
subjects  is  as  wide  as  the  active  operations  of  the  Department 
at  present  include. 

The  special  articles  referring  to  subjects  of  general  postal 
interest  cover  a  considerable  range  of  inquiry  and  deal  more  fully 
with  those  matters  which  are  but  briefly  mentioned  in  that  portion 
devoted  to  the  purely  business  details  of  the  Department.  Much 
of  this  material  is  new  and  all  of  it  treated  so  as  to  interest  the 
reader.  These  articles  on  general  postal  topics  in  connection 
with  the  other  matter  herewith  given,  relating  to  the  service, 
may  please  some  one  here  and  there  and  perhaps  justify  the  publica- 
tion of  this  little  contribution  to  the  literature  of  the  time. 

L.  M. 
Washington,  D.  C. 
March  15,  1917. 


405718 


To  Mr.  Ruskin  McArdle,  late  Private  Secretary 
to  the  Postmaster  General,  now  Chief  Clerk  of  the 
Department,  whose  friendly  regard  I  have  long  en- 
joyed and  whose  courteous  and  considerate  treat- 
ment to  aU  with  whom  his  official  relations  have 
brought  him  into  contact,  this  little  volume  is  re- 
spectfully dedicated  as  a  mark  of  appreciation  and 
a  token  of  deep  and  lasting  esteem. 

The  Author. 


ORGANIZATION  OF  THE  DEPARTMENT 

The  operations  of  the  postal  service  are  conducted  by  divisional  arrange- 
ment with  the  duties  of  each  accurately  and  specifically  defined.  Previous 
to  this  administration  much  of  the  work  of  the  various  bureaus  was 
found  to  be  overlapping  each  other  and  exercising  a  separate  authority 
in  correlated  matters.  These  oflBcially  related  duties  were  each  brought 
under  a  proper  head,  insuring  prompt  attention  and  fixing  a  definite 
responsibihty  which  has  been  found  to  be  of  recognized  benefit  and  value. 

OFFICE   OF   THE   POSTMASTER   GENERAL 

Postmaster  General. — ^Albert  S.  Burleson,  Texas. 
Private  Secretary. — Robert  E.  Cowart,  Texas. 
Chiej  Clerk. — Ruskin  McArdle,  Texas. 
Assistant  Chief  Clerk. — William  W.  Smith,  Tennessee. 
Division  of  Solicitor. — 

Solicitor. — William  H.  Lamar,  Maryland. 

Assistant  Attorneys. — J.  Juleen  Southerland,  North  Carolina. 
Walter  E.  Kelly,  Ohio. 
Edwin  A.  Niess,  Pennsylvania. 
John  A.  Nash,  Pennsylvania. 

Bond  Examiner. — Horace  J.  Donnelly,  District  of  Columbia. 

Law  Clerk. — Arthur  J.  Kause,  Ohio, 
Division  of  Purchasing  Agent. — 

Purchasing  Agent. — James  A.  Edgerton,  New  Jersey. 

Chief  Clerk. — Frederick  H.  Austin,  Missouri. 
Division  of  Post  Office  Inspectors. — 

Chief  Inspector. — George  M.  Sutton,  Missouri. 

Chief  Clerk. — J.  Robert  Cox,  North  Carolina. 
Appointment  Clerk. — Vacant. 
Disbursing  Clerk. — William  M.  Mooney,  Ohio. 

OFFICE   OF   the  FIRST  ASSISTANT  POSTMASTER   GENERAL 

First  Assistant  Postmaster  General. — John  C.  Koons,  Maryland. 
Chief  Clerk. — John  W.  Johnston,  New  York, 
Division  of  Post  Office  Service. — 

Superintendent. — Goodwin  D.  Eliaworth,  North  Carolina. 

Assistant  Superintendent. — William  S.  Ryan,  New  York. 
Division  of  Postmasters*  Appointments. — 

Superintendent. — Charles  R.  Hodges,  Texas. 

Assistant  Superintendent. — Lorel  N.  Morgan,  West  Virginia. 

Assistant  Superintendent. — Simon  E.  Sullivan,  Maryland. 
Division  of  Dead  Letters. — 

Superintendent. — Marvin  M.  McLean,  Texas. 

OFFICE   OF   the   SECOND  ASSISTANT  POSTMASTER   GENERAL 

Second  Assistant  Postmaster  General. — Otto  Praeger,  Texas. 
Chief  Clerk. — Eugene  R.  White,  Vermont. 


6  The  American  Postal  Service 

Division  of  Railway  Mail  Service, — 

General  Superintendent — Wm.  I.  Denning,  Georgia. 

Assistant  General  Superintendent. — George  F.  Stone,  New  York. 

Chief  Clerk. — Chase  C.  Gove,  Nebraska. 
Division  of  Foreign  Mails. — 

Superintendent. — Robert  L.  Maddox,  Kentucky. 

Assistant  Superintendent. — Stewart  M.  Weber,  Pennsylvania. 

Assistant  Superintendent  at  New  York, — ^Edwin  Sands,  New  York, 
Division  of  Railway  Adjustments. — 

Superintendent. — ^James  B.  Corridon,  District  of  Columbia. 

Assistant  Superintendent. — George  E.  Bandel,  Maryland. 

office  of  the  third  assistant  postmaster  general 

Third  Assistant  Postmaster  General. — ^Alexander  M.  Dockery,  Missouri. 
Chief  Clerk. — William  J.  Barrows,  Missouri. 
Division  of  Finance. — 

Superintendent. — William  E.  Buffington,  Pennsylvania. 
Division  of  Postal  Savings. — 

Director. — Carter  B.  Keene,  Maine. 

Assistant  Director. — Charles  H.  Fullaway,  Pennsylvania. 

Chief  Clerk. — Harry  H.  Thompson,  Maryland. 
Division  of  Money  Orders. — 

Superintendent. — Charles  E.  Matthews,  Oklahoma. 

Chief  Clerk. — F.  H.  Rainey,  District  of  Columbia. 
Division  of  Classification. — 

Superintendent. — William  C.  Wood,  Kansas. 
Division  of  Stamps. — 

Superintendent. — William  C.  Fitch,  New  York. 
Division  of  Registered  Mails. — 

Superintendent. — Leighton  V.  B.  Marschalk,  Kentucky. 

office  of  the  fourth  assistant  postmaster  general 

Fourth  Assistant  Postmaster  General. — ^James  I.  Blakslee,  Pennsylvania. 
Chief  Clerk. — J.  King  Pickett,  Alabama. 
Division  of  Rural  Mails. — 

Superintendent. — George  L.  Wood,  Maryland. 

Assistant  Superintendent. — Edgar  R.  Ryan,  Pennsylvania. 

Chief  Clerk. — Lansing  M.  Dow,  New  Hampshire. 
Division  of  Equipment  and  Supplies. — 

Superintendent. — ^Alfred  B.  Foster,  California. 

Assistant  Superintendent, — ^Vacant. 

Chief  Clerk. — Vacant. 

office  of  the  auditor  for  the  post  office  department 

Auditor. — Charles  A.  Kram,  Pennsylvania. 

Assistant  and  Chief  Clerk, — Terrence  H.  Sweeney,  Minnesota. 

Law  Clerk. — Faber  Stevenson,  Ohio. 

Expert  Accountant. — ^Lewis  M.  Bartlett,  Massachusetts. 


The  American  Pobtai*  Service 

Electrical  Accounting  SyslefB* — 
Chiefs  of  Division* — 

Louis  Brehm,  UlinoSa. 
Joshua  H.  Clark,  Maryland. 
James  R.  White,  District  of  Columbia. 
Miscellaneous  Division. — ■ 

C/tie/.— Jasper  N.  Baiceb,  Kansas. 


LATEST  FACTS  OP  POSTAL  INTEREST 
Report  of  Postmaster  General,  Pascal  Year  Ending  June  30, 1917 

The  long  continued  agitation  between  the  railroads  and  the 
Post  OfEce  Department  over  the  method  of  payment  for  mail 
transportation  is  in  process  of  settlement  by  actual  tests.  The 
contention  is  whether  the  basis  of  payment  shall  be  by  weight  or 
by  the  space  used.  While  the  space  rate  is  the  higher  of  the  two 
it  lends  itself  to  rational  readjustment,  and  is  therefore  best  for 
government  needs.  The  tests  made  show  a  saving  of  shout 
$7,000,000  per  annum  by  the  space  method. 

The  eflSciency  standard  now  required  of  Postmasters,  has  It 
is  stated,  greatly  improved  the  service  and  the  announced  policy 
of  the  Department  to  reappoint  all  those  who  render  meritorious 
service  has  been  adhered  to  and  will  be  continued. 

During  the  year  ending  June  30,  1917,  38  second  class  oflSces 
were  advanced  to  the  first  classy  135  third  class  to  second,  and 
1,203  fourth  class  to  third.  Average  annual  salary  of  post-oSSce 
clerks  is  now  $1,142  per  annum^  city  carriers  $1,126.50. 

Removals  of  employees  for  cause  are  now  rarely  made,  statisties 
show  less  than  one  per  cent  in  both  the  post  office  and  city  carrier 
service. 

It  is  recommended  that  where  because  of  unusual  conditions, 
rural  carriers  cannot  be  obtained  at  the  maximum  rate  of  pay, 
advertisements  be  issued  calling  for  proposals  for  the  performanee 
of  such  service. 

Motor  vehicle  routes  are  now  In  operation  on  a  total  length 
of  over  41,000  miles,  avera^lnj^  54  miles  per  route,  at  an  averse 
cost  of  $1,786.49  per  route. 

There  are  now  43,463  rural  routes  in  operation,  covering 
1,112,556  miles.  Cost  of  rural  service  decreased  0.011  per 
patron  during  the  year  1917j  cost  per  mile  decreased  0.114  cent 
per  mile. 


9.  The  American  Postal  Service 

The  cost  per  mile  of  travel  by  star-route  contractors  is  $0.1024. 
Cost  per  mile  of  travel  by  rural  carrier  is  $0.1510.  This  difference 
in  cost  is  receiving  departmental  consideration. 

r 

!  Shipment  of  parcel  post  packages  increased  14  per  cent  in  1917, 
the  increase  representing  more  than  25,000,000  pieces.  Cooper- 
ation of  postmasters  in  bringing  the  insurance  feature  particu- 
larly that  of  partial  damage  prominently  to  public  notice,  has 
resulted  in  an  increase  of  over  8,000,000  insured  parcels  over  the 
showing  of  1916.' 

Growing  carelessness  in  addressing  letter  mail  resulted  in 
13,000,000  letters  being  found  undeliverable  during  1917,  an 
increase  of  21  per  cent. 

The  report  shows  an  audited  surplus  for  the  year  of  $9,836,211 
the  largest  in  the  history  of  the  department.  The  increase  over 
the  preceding  year  was  5.66  per  cent,  while  the  increase  in  cost 
was  4.45  per  cent.  The  audited  revenues  for  the  year  amounted 
to  $329,726,116. 

Remarkable  growth  in  postal  savings  is  shown.  In  1917  there 
were  674,728  depositors  with  a  total  of  $131,954,696  to  their 
credit.  The  average  balance  for  each  depositor  was  $195,57. 
This  was  an  increase  over  the  previous  year  of  71,791  in  the 
number  of  depositors,  $45,934,811  in  the  amount  and  $52,90  in 
the  per  capita  balance. 


CONTENTS 

CHAPTER  I 

PAGB 

Latest  Facts 7 

General  Postal  History 11- 

Beginning  of  Personal  Communication 12 

Postal  History  of  England 12 

Penny  Postage 13 

General  Post  Office  in  London 14 

French  and  German  Postal  History 15 

The  American  Colonial  Period 16 

Under  the  Continental  Congress 16 

The  Crown  Postmasters 17 

Post  Offices  and  Post  Roads  Established 18 

The  Period  of  Progress 18 

Postage  Stamps  Introduced 19 

Progressive  Steps  Taken 19 

Historical  Data 20 

CHAPTER  II 

Questions  of  Finance.     Postal  Revenue — How  Derived  and  Expended 

Revenues  and  Expenditures 21 

Method  of  Expenditure 21 

Appropriations 22 

Auditor 23 

CHAPTER  III 

Departmental  Operations — General  and  Detailed  Descriptions  and  Cost  of  Service 

History  of  Rural  Free  Delivery 24 

Rural  Delivery  Defined 25 

The  Struggle  for  Rural  Delivery 25 

The  Advantages  of  Rural  Delivery 26 

Rural  Delivery  as  Viewed  by  President  McKinley 27 

First  County  Rural  Delivery 27 

Country- Wide  Extension,  Rural  Delivery 28 

How  Rural  Delivery  Enhances  the  Value  of  Farm  Land 28 

Per  Capita  Cost,  in  Rural  Delivery 29 

Some  Necessary  Conditions,  Rural  Delivery 31 

Annual  Cost  per  Patron  by  States  and  Pieces  Handled 31 

Population  and  Extension,  Rural  Service 32 

Motor  Vehicle  Routes,  Rural  Delivery »    .  32 

Village  Delivery 34 

City  Delivery 35 

Star  Routes 35 

Postal  Savings 35 

Money  Order  System 36 

Stamp  Books 36 

Postal  Cards 37 

Division  of  Stamps 37 

Classification 37 

Purchasing  Agent 38 

Dead  Letter  Office 38 

Mail  Locks 89 

Mail  Pouches 39 

Post  Office  Supplies 41 

Special  Delivery 42 

Foreign  Mail  Service 42 

Topography  Branch 43 

Division  of  Post  Office  Service 44 

American  Postal  System 45 

Considerate  Treatment  of  Newspaper  Mail 45 

0 


10  The  American  Postal  Service 

CHAPTER  IV 

Special  Articles 

PAGE 

Stamp  Manufacture,  Bureau  Engraving  and  Printing  . 46 

Post  Office  Inspectors 48 

Railway  Mail  Service 48 

Parcel  Post,  Opposition  Thereto 49 

Interesting  Facts.     Postmasters  General 53 

Withdrawal  of  Letters  from  the  Mail 54 

Handling  of  the  Mail  in  Department 54 

Cost  Accounting 55 

Cleansing  Mail  Bags 55 

Farm-to- Table  Movement 55 

Postal  Service  in  Alaska 57 

Standardization  of  Post  Offices 58 

Postal  Savings  Circulars  in  Foreign  Tongues 58 

A  Patriotic  Editor 59 

Damage,  Parcel  Post  Mail 59 

Opinion  of  Daniel  Webster  on  Mail  Extension 60 

Blind  Woman  on  Pay  Rolls 61 

Wanamaker — Four  Postal  Reforms 62 

The  Rural  Carrier  as  a  Weather  Man 64 

New  Box  Numbering  System,  Rural  Routes 65 

Wireless  Telephones,   Rural  Service 68 

Parcel  Post  Exhibits  at  County  Fairs 70 

The  Great  Express  Service  of  the  Government 71 

The  Telephone  and  Parcel  Post  in  Cooperation 72 

Speeding  up  the  Service — Rural  Mails 73 

Training  Public  Officials 74 

For  the  Benefit  of  the  Fourth  Class  Postmasters 76 

Public  Work  and  Private  Control 77 

Protecting  the  Public  Records 78 

Registry  and  Insurance  Service,  1916 78 

Readjustment  Rate,  Second  Class  Mail 79 

Peculiar  Customs,  European  Rural  Delivery 80 

What  Was  a  Newspaper  in  1825  ? 81 

Women  in  the  Post  Office  Department 82 

Railroad  Accidents,  Construction  of  Cars 83 

Public  Ownership  of  Telegraph  and  Telephone — Burleson 83 

Liquor  Carried  by  the  Mails 84 

How  the  Post  Office  Department  Helps  the  Farmer 85 

Expediting  the  Mails  on  Star  Routes 87 

Abraham  Lincoln  Postmaster  in  1837 88 

A  Central  Accounting  Office  for  Each  County 88 

Millions  of  Money  for  Good  Roads 89 

$14,550,000  for  Rural  Post  Roads 91 

Mail  Extensions  by  Air  and  Motor  Truck  Houtes 92 

Care  Required  in  Preparing  Contracts 93 

Birthday  American  Postal  Service 93 

List  of  Postmasters  General 94 

CHAPTER  V 

Miscellaneous  Matters 

General  and  Financial  Summary 95 

Items  of  Interest 97 

Old  Laws  and  Regulations 104 

Queer  Collection  Holiday  Mail 108 

Feeding  the  Cats 110 

Couple  of  Distinguished  Canines IID 

Soldier's  Sister  a  Mail  Clerk 112 

Index  to  Items  of  Interest \\% 


THE  AMERICAN  POSTAL  SERVICE 


CHAPTER  I 

General  Postal  History 

The  need  of  communication  was  doubtless  one  of  the  earliest 
activities  of  the  Ancient  World,  not  for  public  use  but  for  govern- 
ment purpose.  In  Holy  Writ  we  learn  that  the  Israelitish  Nation 
made  early  use  of  the  means  at  hand.  In  the  first  Book  of  Kings 
it  is  stated  that  Queen  Jezebel  wrote  letters  in  Ahab's  name, 
sealed  with  the  King's  seal,  and  sent  them  to  the  elders  and  nobles 
in  the  city.  In  the  Book  of  Esther  mention  is  made  of  sending 
letters  by  posts  to  all  the  King's  provinces.  There  are  also 
evidences  that  the  Assyrian  and  Persian  nations  established 
stations,  or  posts  a  day's  Journey  apart,  at  which  horses  were  kept 
ready  saddled  with  waiting  couriers  for  the  transmission  of  public 
orders  and  edicts.  Xenophon  mentions  that  Cyrus  employed 
posts  throughout  his  dominions  and  Herodotus  speaks  of  the  large 
structures  erected  for  post  stations.  The  mail  service  of  China 
dates  far  back  into  antiquity.  It  is  said  that  in  the  fourteenth 
century  there  were  10,000  mail  stations  in  the  empire.  Peru, 
remarkable  for  its  early  evidences  of  civilization,  had  according 
to  the  historian  Prescott,  communication  established  from  one  end 
of  the  country  to  the  other.  There  is,  however,  nothing  to  show 
that  ordinary  human  affairs  received  any  attention  at  this  early 
period,  the  activities  of  rulers  being  devoted  entirely  to  govern- 
mental interest  and  concern.  The  affairs  of  commerce  and  trade 
were  probably  carried  on  by  personal  enterprise,  by  voyages  of 
trade  discovery  by  water  or  expeditions  on  land. 

The  method  of  using  couriers  for  transmitting  intelligence  was 
evidently  long  continued,  being  the  only  means  known  by  which 
such  need  could  be  met,  or  the  one  which  most  naturally  suggested 
itself.  The  Romans  employed  couriers  for  the  promulgation  of 
military  and  public  orders  to  their  scattered  provinces,  private 
letters  being  sent  by  slaves  or  by  such  opportunity  as  occasion 
afforded.  It  is  said  that  Charlemagne  employed  couriers  for 
public  purposes,  but  the  practice  was  discontinued  after  his  death, 
special  messengers  being  used  when  occasion  required.  England 
employed  couriers  for  public  purposes  in  the  thirteenth  century, 
and  in  the  fourteenth  century  Louis  XI  returned  to  the  practice 

n 


12  The  American  Postal  Service 

of  employing  mounted  couriers  and  established  stations  but  only 
for  government  purposes. 

The  Beginning  of  Personal  Communication 

As  early  as  the  beginning  of  the  thirteenth  century  the  need  of 
personal  communication  was  recognized  and  the  University  of 
Paris  arranged  for  the  employment  of  foot-messengers  to  bear 
letters  from  its  thousands  of  students  to  the  various  countries  in 
Europe  from  whence  they  came.  This  plan  lasted  until  1719. 
In  the  fifteenth  century  an  attempt  was  made  and  the  custom 
prevailed  for  some  time,  of  sending  letters  by  traveling  trades- 
men or  dealers  who  made  regular  trips  in  certain  directions  for 
barter,  purchase  or  sale.  The  tremendous  stimulus  given  to  the 
development  of  commercial  conditions  by  the  crusades,  made 
business  intercourse  necessary,  and  the  post  riders  who  had  siu*- 
plus  horses  soon  found  use  for  them  in  the  conveyance  of  passengers 
and  ultimately  in  the  transmission  of  general  information  which 
finally  resulted  in  a  fixed  compensation  and  which  method  re- 
mained in  use  for  a  considerable  period. 

The  real  beginning  of  letter  posts  for  private  and  business 
purposes,  dates  from  the  year  1516,  when  Roger,  Count  of  Thurn, 
established  riding  posts  in  the  Tyrol,  connecting  Germany  and 
Italy.  A  letter  post  had  been  established  in  the  Hanse  towns  in 
the  thirteenth  century,  but  the  actual  commencement  of  such 
activities  dates  from  the  year  1516.  The  Emperor  Charles  V 
made  these  riding  posts  general  throughout  his  dominions  and 
appointed  Leonard,  Count  of  Thurn,  his  postmaster  general. 
I  The  Counts  of  Thurn  and  Taxis  held  this  monopoly  by  regular 
succession  for  many  years  afterward.  The  rapid  growth  of  English 
civilization  made  postal  progress  necessary  for  its  people  and  this 
brings  us  to  the  period  of  most  interest  to  students  as  well  as  the 
average  reader. 

The  Postal  History  of  England 

As  much  of  our  postal  system  is  naturally  based  on  that  of 
England  from  our  early  Colonial  dependence,  it  is  of  interest  to 
note  the  various  steps  of  English  progress  and  development  in 
connection  with  the  subject. 

The  first  English  postmaster  general  of  whom  any  account  can 
be  given  was  Sir  Brian  Tuke,  who  is  described  on  the  records  of  the 
year  1533  as  "Magister  Nuncrorum,  Cursorum,  Sire,  Postarum," 


The  American  Postal  Service  IS 

but  long  subsequent  to  this  appointment  of  a  postmaster  general 
the  details  of  the  service  were  frequently  regulated  by  proclama- 
tion and  by  orders  in  council.  During  the  earlier  years  of  Queen 
Elizabeth,  most  of  the  business  of  the  postal  service  to  and  from 
England  was  managed  by  the  incorporated  "Merchant  Strangers'* 
who  appointed  special  postmasters  among  themselves. 

The  accession  of  James  I,  necessitating  more  frequent  com- 
munication between  London  and  Scotland,  led  to  many  improve- 
ments in  the  postal  service.  It  was  ordered  that  the  posts  should 
travel  not  less  than  7  miles  an  hour  in  summer  and  5  miles  in 
winter.  In  1619  a  separate  postmaster  general  for  foreign  parts 
was  created.  Thomas  Witherings  was  one  of  the  successors  in 
this  office  and  entitled  to  rank  as  one  of  the  many  conspicuous 
postal  reformers  in  the  continental  service.  All  letters  were  then 
carried  by  carriers  or  footpads  16  or  18  miles  a  day.  It  required 
two  months  to  get  answers  from  Scotland  or  Ireland  to  London. 
He  directed  that  all  northern  mail  be  put  into  one  "portmantle" 
directed  to  Edinburgh  and  separate  bags  to  such  postmasters  as 
lived  upon  the  road  near  to  any  city  or  town  corporate,  which 
was  the  first  step  in  the  separation  of  mail  since  carried  to  such 
perfection  here  and  elsewhere. 

Penny  Postage  Attempted 

The  income  from  the  post  office  in  1643  was  but  5,000  pounds. 
Ultimately  the  posts  both  inland  and  foreign  were  farmed  out  to 
John  Manley  for  10,000  pounds  a  year  by  an  agreement  made  in 
1653.  About  this  time  an  attorney  of  York,  named  John  Hill, 
ventured  upon  the  plan  of  placing  relays  of  post  horses  between 
that  city  and  London  and  undertook  to  convey  letters  and  parcels 
at  half  the  former  charge.  He  aimed  to  establish  penny  postage 
for  England,  two-penny  postage  for  Scotland,  and  a  four-penny 
postage  for  Ireland.  But  the  post  office  was  regarded  in  that  day 
as  a  means  of  revenue  and  incidentally  of  political  espionage  and 
government  did  not  approve  of  such  individual  enterprise.  His 
letter  carriers  were  literally  trampled  down  by  Cromwell's  soldiers, 
and  the  enterprising  attorney  narrowly  escaped  severe  punishment.' 
Another  attempt  at  penny  postage  for  London  was  established  by 
William  Duckwra,  a  custom  house  employe,  and  Robert  Murray ,► 
a  clerk  in  the  excise  office.  Duckwra  carried  for  a  penny  and  regis- 
tered and  insured,  both  letters  and  parcels  up  to  a  pound  in  weight 


14  The  American  Postal  Service 

and  $10  in  value.  He  established  hourly  collections  and  ten 
deliveries  daily  for  the  central  parts  of  London  and  six  for  the 
suburbs  The  Duke  of  York  had,  however,  a  patent  covering 
this  service  and  suits  were  laid  against  him  which  put  an  end  to 
his  enterprise. 

The  systematic  employment  of  women  in  post  office  and  tele- 
graph service  was  for  a  long  time  an  experiment  and  a  problem, 
but  it  afterwards  proved  a  success.  Under  new  regulations  in 
1870,  women  were  employed  as  telegraphists  for  eight  hours 
daily  with  pay  according  to  age,  intelligence  and  practical  ex- 
perience. At  the  close  of  1880,  there  were  a  thousand  women  so 
employed  in  the  cities  of  London,  Edinburgh,  and  Dublin,  and 
nearly  as  many  in  minor  postal  positions  throughout  the  Kingdom. 

General  Post  Office  at  London 

The  necessary  authority  for  the  establishment  of  a  general 
post  office  at  London  to  cover  the  British  dominions,  including 
the  American  Colonies,  was  given  by  act  of  Parliment  in  1657. 
Under  this  act  the  postal  affairs  of  England  were  conducted  for  a 
great  length  of  time  with  but  little  if  any  improvement.  It  was 
not  until  the  memorable  pamphlet  of  Sir  Rowland  Hill  was  issued 
in  1837  that  any  real  progress  was  made  or  any  attempt  made 
worthy  of  mention.  Postal  conditions  were  so  unsatisfactory 
that  he  made  the  whole  subject  a  matter  of  profound  inquiry  and 
his  pamphlet  on  "Postal  Reform"  stirred  the  nation  and  led  to  a 
complete  reformation  of  the  entire  postal  system  and  was  the 
beginning  of  the  British  post  office  as  we  see  it  today. 

The  important  events  in  English  postal  history  given  above 
and  that  which  follows  in  chronological  order  are  abridged  from  the 
Encyclopedia  Brittanica,  1891 — 1720,  organization  of  cross  roads 
and  rural  posts;  1753,  establishment  of  post  office  in  American 
Colonies  under  Benjamin  Franklin;  1774,  improved  mail  coaches 
and  organized  mail  routes;  1821,  first  conveyance  of  mail  by  steam- 
packet;  1830,  first  mail  coach  by  railway;  1834,  postage  stamps 
invented  by  James  Chalmers,  Dundee,  Scotland;  1835,  overland 
route  to  India;  1838,  Postal  money  order  system;  1840,  general 
and  uniform  penny  postage  (per  half  ounce) ;  1855,  first  street 
letter  boxes  put  up  in  London;  1856,  Postal  Guide  issued;  1861, 
Postal  Savings  Banks  instituted;  1870,  transfer  of  telegraph  to 
state  and  postal  cars  introduced;  1881,  postal  orders  issued;  1883, 
parcel  post  established. 


I 


The  Amebican  Postal  Service  15 

French  and  German  Postal  History 
The  French  Postal  System  was  founded  by  Louis  XI  in  1464. 
It  was  largely  extended  by  Charles  IX,  1565,  and  generally 
improved  under  Henry  IV  and  Louis  XIII.  Napoleon  abolished 
the  board  system  by  which  the  French  service  was  then  conducted 
and  recommitted  the  business  to  a  postmaster  general  as  it  had 
been  under  Louis  XIII.  Napoleon  greatly  improved  the  service 
in  all  its  details,  and  the  measures  he  adopted  and  the  reforms  he 
introduced  in  1802  remained  in  force  for  many  years  afterward 
and  are  probably  in  use  now  with  such  additions  as  developments 
suggested.  The  most  important  reforms  in  French  Postal  History 
were  the  extension  of  postal  facilities  to  all  the  communes,  effected 
under  Charles  X,  1829;  adoption  of  postage  stamp,  1849,  under 
Louis  Napoleon.  Issue  of  postal  notes  to  bearer,  1860;  Postal 
Savings  Banks,  instituted  1880. 

The  development  of  the  Prussian  or  present  German  postal 
system  was  mainly  due  to  Dr.  Stcphan,  who  was  also  the  chief 
organizer  of  the  International  Postal  Union.  This  Prussian 
system,  incorporated  into  the  admirably  organized  post  and 
telegraph  service  of  the  empire,  began  with  the  Great  Elector, 
1646.  In  Strasburg  a  messenger  code  existed  as  early  as  1443. 
A  postal  service  was  organized  at  Nuremberg  in  1570.  The  first 
mail  steam  packet  was  built  in  1821;  the  first  transmission  of  mails 
by  railway  was  in  1847;  telegraph  service  in  postal  affairs,  1849. 
A  regular  delivery  by  letter  carriers  attached  to  the  state  postal 
system  existed  in  Berlin  as  early  as  1712. 

These  principal  items  of  postal  history  concerning  France  and 
Germany  are  condensed  from  the  excellent  articles  upon  the  sub- 
ject as  found  in  the  Encyclopedia  Brittanica,  edition  of  1891,  as 
well  as  the  information  on  English  postal  history,  for  which 
acknowledgment  is  made  in  its  proper  place  relating  to  the 
Postal  History  of  Great  Britain. 


1^  The  American  Postal  Service 

The  American  Colonial  Period 
The  earliest  attempt  to  provide  postal  facilities  for  the  colonies 
was  in  1672  when  Governor  Lovelace,  of  the  New  York  colony, 
established  monthly  service  between  New  York  and  Boston. 
An  office  was  later  established  at  Philadelphia  from  which  weekly 
mail  was  received  and  sent.  By  the  signing  of  letters  patent  in 
1691  the  control  of  the  American  posts  was  vested  in  Thomas 
Neale,  commonly  called  the  "Neale  Patent."  In  that  year  Neale 
and  the  Royal  Postmasters  General  appointed  Andrew  Hamilton, 
Postmaster  General  of  America.  All  the  colonies  except  Virginia 
cooperated  with  him  in  improving  and  extending  the  service. 
A  weekly  post  was  established  between  Portsmouth,  New  Hamp- 
shire, to  Boston,  Saybrook,  New  York,  Philadelphia,  Maryland 
and  Virginia.  Five  riders  were  engaged  to  cover  each  of  the  five 
stages  twice  a  week.  In  1707  the  crown  purchased  the  good  will 
of  the  American  post  and  continued  John  Hamilton,  the  son  of 
Andrew,  in  that  office  at  an  annual  salary  of  200  pounds.  In  the 
year  1737,  Franklin  became  postmaster  at  Philadelphia  and 
generally  supervised  the  other  offices  of  the  colonies.  In  1753  he 
was  one  of  the  deputy  Postmasters  General,  but  was  dismissed  in 
1774  by  Governor  Hutchinson,  of  Massachusetts,  because  of  his 
adherence  to  the  patriotic  cause. 

Under  the  Continental  Congress 

But  Franklin  was  not  to  remain  idle  for  when  the  Continental 
Congress  met  at  its  second  session  at  Philadelphia,  July  26,  1775, 
they  resolved  to  have  a  post  office  system  of  their  own  and 
he  was  selected  to  carry  on  the  work.  A  salary  of  $1,000  per 
annum  was  voted  him  with  permission  to  employ  a  secretary  and 
a  comptroller  with  a  salary  of  $340  per  annum  to  each,  and  a  line 
of  posts  ordered  established  from  Falmouth,  New  England,  to 
Savannah,  Ga.,  with  postages  20  per  centum  less  than  those 
afforded  by  parliament.  However,  Franklin's  great  diplomatic 
ability  soon  secured  him  a  transfer  to  a  wider  field  of  usefulness 
and  his  son-in-law,  Richard  Bache,  jvho  had  been  comptroller, 
was  named  to  succeed  him.  The  lj0ger  kept  by  this  gentleman 
is  still  preserved  among  the  archives  of  the  Department.  It 
consists  of  about  3  quijjes  of  foolscap,  written  over  in  a  neat  and 
legible  hand.  Ebenezer  Hazard,  who  had  been  the  Constitu- 
tional postmaster  at  New  York,  so  termed  to  distinguish  him  from 
the  British  deputy  at  that  place,  was  appointed  to  succeed  him. 


The  American  Postal  Service  17 

In  1782,  an  act  was  passed  by  the  Colonial  Congress  establishing 
a  line  of  posts  between  New  Hampshire  and  Georgia,  the  salary 
of  the  deputies  not  to  exceed  20  per  cent  of  the  revenues.  The 
rate  of  pastage  at  that  time  on  letters  weighing  not  over  1  penny- 
weight and  going  not  more  than  60  miles  was  equal  to  5}/^  cents 
and  a  proportionate  charge  for  greater  weights  and  distances. 

The  Crown  Postmasters 
In  a  well- written  article  in  the  Washington,  D.  C,  Evening 
Stavy  of  July  26,  1913,  upon  the  occasion  of  the  celebration  of  the 
one  hundred  and  thirty-eighth  year  of  the  American  postal  serv- 
ice, the  activities  or  self -assumed  powers  of  the  English  or  crown 
postmasters  and  its  effect  in  encouraging  the  independent  senti- 
ment of  the  time  was  stated  as  follows: 

"These  crown  postmasters  had,  or  at  least  they  exercised,  the 
right  of  *  spying'  upon  the  mails  intrusted  to  their  care.  This 
made  it  difficult  and  dangerous  for  the  liberty-loving  colonists  to 
communicate  with  each  other.  The  zealous  representatives  of 
England  also  professed  to  exercise  a  supervising  care  over  the  news- 
papers which  were  printed  in  the  colonies,  and  made  arbitrary 
rules  and  regulations  against  those  who  were  too  Uberal  or  out- 
spoken in  their  expressions  of  condemnation  of  things  as  they  then 
were  and  who  dared  to  urge  the  liberty  and  independence  of  the 
colonists.  Some  papers  were  shut  out  of  the  mails  and  some  were 
forced  to  tone  down  their  utterances.  A  pound  sterling  was 
demanded  to  carry  250  papers,  130  miles. 

"The  post  office  led  in  the  unification  of  the  colonists.  Paul 
Revere  was  the  confidential  post  rider  of  Massachusetts.  The 
tea  party  in  Boston  Harbor  would  have  been  but  a  neighborhood 
affair  but  for  the  agency  of  the  post  office  and  the  patriotic  pub- 
lishers who  spread  the  news  up  and  down  the  Atlantic  coast. 

"The  postal  service  did  more  than  any  one  other  agency  to  . 
unify  and  unite  the  colonists.  It  brought  their  interests  antT- 
endeavors  to  a  common  meeting  point.  It  brought  the  leading 
men  and  women  to  know  and  exchange  ideas  one  with  another. 
Printing  presses  were  established  about  the  same  time  that  the 
postal  service  was  begun  in  America.  Postmasters  enjoyed  the 
privilege  of  sending  their  mail  free  of  postage,  so  most  postmasters 
became  publishers.  In  this  way  the  news  of  the  doings  of  the 
various  jealous  colonists  was  disseminated  and  the  opinions  of 
these  early  postmaster-publishers  were  given  wide  circulation.  It 
added  an  incentive  to  trade  and  intercourse.  By  making  the 
coloniafts  acquainted  it  dissipated  jealousies.  The  growth  of  the 
post  office  from  the  humble  beginning  of  a  sturdy  carrier  from  New 
York  to  Boston  loaded  with  *  divers  letters  and  small  portable 
packages'  (you  see  they  had  parcel  post  even  in  those  days), 
solidified  the  colonists  and  made  their  independence  possible." 


18  The  American  Postal  Service 

Post  Offices  and  Post  Roads  Established 

During  the  Continental  Government,  the  receipts  of  all  the 
post  offices  did  not  exceed  $35,000  and  in  1789  were  $10,000  less. 
February  20,  1792,  an  act  was  passed  establishing  post  offices  and 
post  roads  within  the  United  States,  the  first  general  law.  The  con- 
tracts made  were  to  run  eight  years  and  the  salary  of  the  Postmaster 
General  was  increased  to  $2,000,  and  $1,000  for  his  Assistant. 
The  original  number  of  post  offices  (that  is  for  the  first  year)  was 
seventy-five  and  the  mail  routes  less  than  2,000  miles  over  which 
mails  were  carried  by  horse,  stage,  or  sailing  packets.  In  1795, 
the  number  of  postoffices  had  increased  to  453,  and  the  routes  to 
over  13,000,  and  the  net  revenue  to  over  $42,000.  This  closes 
the  period  of  Continental  management,  except  ordinary  details  and 
changes  which  bore  no  relation  to  any  especial  object  or  purpose. 

The  Period  of  Progress 

From  1801  dates  the  great  advance  in  modern  methods,  ideas 
and  accomplishment.  It  then  occupied  forty  days  to  get  a  letter 
from  Portland,  Me.,  to  Savannah,  Ga.,  and  bring  back  an  answer, 
and  forty-four  at  Philadelphia  for  a  reply  to  one  addressed  to 
Nashville,  Tenn.  Ten  years  later  the  time  had  been  reduced  to 
twenty-seven  and  thnty  days.  By  1810  there  were  over  2,400 
post  offices  and  the  post  routes  covered  over  37,000  miles.  Marked 
improvements  began  soon  after  this  period.  The  office  of  Second 
Assistant  Postmaster  General  was  created  and  the  scale  of  postages 
changed.  Single  letters  of  one  piece  were  charged  from  8  to  25 
cents,  according  to  distance.  Sunday  delivery  of  mail  at  post 
offices  was  inaugurated  about  that  time  in  the  face  of  great  ob- 
jection from  the  religious  bodies  of  the  country,  the  strife  being 
kept  up  for  many  years. 

In  1813  the  mails  were  first  conveyed  in  steamboats  from  one 
port  town  to  another,  the  Government  paying  3  cents  for  each 
letter  and  1  cent  for  newspapers.  The  postal  laws  of  1816  made 
a  further  change  in  postage  which  lasted  until  1845.  The  new 
scale  charged  letters  consisting  of  one  piece  of  paper,  not  going 
over  30  miles,  6  cents;  not  over  80  miles,  10  cents;  not  over  150 
miles,  12j^  cents,  and  not  over  400  miles,  18%  cents,  and  for 
greater  distances,  25  cents.  On  the  ninth  of  March,  1829,  Hon. 
William  T.  Barry,  of  Kentucky,  was  commissioned  Postmaster 
General  by  President  Jackson,  and  called  to  a  seat  in  his  Cabinet, 
being  the  first  Postmaster  General  to  receive  that  honor. 


The  American  Postal  Service  19 

Postage  Stamps  Introduced 
Early  in  1836,  pony  expresses  as  they  were  called,  were  put  into 
operation  on  the  principal  turnpike  roads  of  the  Southern  and 
Western  States  for  the  purpose  of  carrying  letters  of  persons  de- 
siring greater  expedition,  press  news  and  Government  dispatches, 
at  triple  the  ordinary  rates,  but  the  experiment  was  abandoned, 
not  proving  profitable.  In  July,  1838,  the  Department  was 
reorganized  and  an  Auditor  appointed.  The  office  of  Third 
Assistant  Postmaster  General  was  also  created  at  that  time. 
Railroads  were  declared  post  routes  by  act  of  Congress,  in  July, 
1838,  and  the  mails  carried  upon  them.  Postage  stamps  of  the 
five-  and  ten-cent  denominations  with  the  faces  of  Franklin  and 
Washington,  respectively,  were  introduced  in  1847.  Previously 
all  postages  were  collected  entirely  in  money,  prepayment  being 
optional.  July,  1851,  a  new  series  of  stamps  was  adopted,  con- 
sisting at  first  of  denominations  of  1  and  3  cents,  but  afterwards 
of  larger  amounts. 

Progressive  Steps  Taken 

Rapidly  sketched  for  reference,  the  more  important  progressive 
steps  that  followed  show  that  during  the  administration  of  Presi- 
dent Tyler,  while  Hon.  Charles  A.  Wickhffe,  of  Kentucky,  was  ^ 
Postmaster  General,  many  reforms  were  instituted,  such  as  cheap-  ^-^ 
ening  the  postage,  improving  the  manner  of  letting  routes  by 
contract,  prohibiting  private  expresses,  and  restricting  the  frank- 
ing privilege.  Prior  to  this  period,  letters  were  not  rated  by  weight 
but  by  enclosures.  For  instance,  a  letter  containing  three  bank- 
notes for  which  the  single  letter  charge  would  be  18%  cents  for 
over  150  miles,  was  then  charged  75  cents,  the  inclosure  making 
it  a  quadruple  letter.  Under  the  new  system  the  rate  was  meas- 
ured by  the  weight,  all  weighing  not  over  half  an  ounce  were 
regarded  as  single  letters  and  carried  for  5  cents  for  distances  not 
over  300  miles  and  10  cents  for  greater  distances.  In  1850  the 
"foreign  desk,"  from  which  ultimately  grew  the  admirable  arrange^ 
ment  of  the  Postal  Union,  was  instituted  by  Hon.  Horatio  King, 
of  Maine.  Through  the  efforts  of  Judge  Hall,  of  New  York, 
Postmaster  General  under  President  Fillmore,  the  postage  on 
letters  was  reduced  to  3  cents.  The  registration  system  came  in 
under  Postmaster  General  Campbell,  of  Pennsylvania,  during  the 
administration  of  President  Pierce,  i  The  Free  Delivery  Service 


20  The  Amekican  Postal  Service 

was  inaugurated  in  1863  by  Hon.  Montgomery  Blair,  of  Maryland, 
also  the  money  order  system  in  1864,  in  Lincoln's  administration. 
The  Railway  Mail  Service  dates  from  July,  1862,  when  Judge 
Holt,  of  Kentucky,  ordered  its  establishment,  the  first  railway 
postofiice  being  from  Quincy,  111.,  to  St.  Joseph,  Mo.,  on  the 
Hannibal  and  St.  Joseph  Railway. 

Historical  Data 

A  summary  of  historical  data  covering  some  of  the  principal 
features  of  postal  progress  may  be  given  in  chronological  order 
as  follows:  Postage  stamps  first  issued  at  New  York,  July,  1847; 
stamped  evelopes  first  issued,  June,  1853;  letters  registered,  July, 
1855;  newspaper  wrappers.  Act  of  Congress,  February,  1861; 
Free  City  Delivery,  July,  1863;  Money  Order  System,  November, 
1864;  International  Money  Orders,  October,  1867;  Postal  Cards, 
May,  1873;  Postage  reduced  to  2  cents,  October,  1883;  Special 
Delivery,  October,  1885;  Rural  Delivery,  October,  1896;  Postal 
Savings,  January,  1911;  Parcel  Post,  January,  1913. 

The  maximum  number  of  post  offices  in  the  United  States, 
76,945,  was  reached  in  1901,  since  which  time  by  the  introduction 
of  rural  delivery  the  number  has  steadily  declined,  21,011  having 
been  discontinued.  July,  1916,  there  were  55,934  in  operation. 
Extent  of  post  routes  in  miles  in  1790  was  1,875.  In  1915  the 
number  was  1,672,169.  The  miles  of  service  performed  in  1915 
amounted  to  617,527,795.  The  entire  compensation  paid  to 
postmasters  in  1789  was  $1,657.  In  1916  the  estimated  amount 
was  $31,150,000. 


CHAPTER  II 

Questions  of  Finance 
Postal  Revenue — How  Derived 

The  revenues  of  the  Post  OflSce  Department  are  derived  from 
sales  of  stamps,  stamped  envelopes,  newspaper  wrappers  and 
postal  cards,  second-class  postage  (pound  rate)  paid  in  money, 
box  rents,  money  order  business,  balances  due  from  foreign  postal 
administrations,  miscellaneous  receipts,  fines  and  penalties,  and 
from  unclaimed  dead  letters  and  postal  matter.  Its  greatest 
revenue  is  received  from  postage  paid  on  mail  matter.  The 
amount  so  received  in  the  last  fiscal  year  was  $287,001,495.13,  or 
91.97  per  cent  of  the  total  revenue  received.  Of  this  amount 
$20,174,973.93  was  received  from  mailings  of  second,  third  and 
fourth-class  mail  matter  on  which  the  postage  was  collected  in 
money,  the  remainder,  $266,826,521.20,  being  the  postage  paid 
by  means  of  stamps.    Entire  revenue,  1916,  $312,057,688,83. 

Revenues  and  Expenditures 

The  audited  revenues  and  expenditures  of  the  Post  OflSce  De- 
partment for  the  year  1916,  show  that  the  ordinary  postal  revenue 
yielded  $303,232,143.36;  revenue  from  money  order  business 
$8,130,545.47,  and  from  postal  savings  business  $695,000.  Total 
revenue  received,  $312,057,688.83.  Expenditures:  On  account  of 
the  current  year,  1916,  $297,637,128.87.  On  account  of  previous 
years,  $8,566,904.27.  Total  expenditure  during  the  fiscal  year 
1916,  $306,204,033.14.  Excess  of  revenue  over  expenditure, 
1916,  $5,853,565.69.  Amount  of  losses  by  fire,  burglary,  etc., 
$24,419.62.  Surplus  in  postal  revenue  for  fiscal  year  1916, 
$5,829,236.07. 

Method  of  Expenditure 

Expenses  of  the  postal  service  are  paid  as  follows : 

By  Postmasters. — ^Postmasters  are  authorized  to  pay  their  own 
salaries,  the  salaries  of  clerks  and  carriers  attached  to  their  oflSces, 
rent,  light,  and  fuel,  and  other  expenses  of  their  oflfices  from  postal 
receipts. 

By  Warrants  Drawn  upon  the  Treasurer  of  the  United  States. — 
These  warrants  are  in  payment  of  the  contracts  for  transporta- 
tion of  mail,  supplies,  and  other  obligations  that  cannot  be  paid 
direct  by  postmasters.    The  accounts  are  prepared  for  payment 

21 


22  The  American  Postal  Service 

by  journals  in  the  Bureau  of  the  Post  Office  Department  having 
jurisdiction  over  the  appropriations  and  certified  to  the  Auditor, 
who  reviews  them  and  forwards  the  journals  to  the  Division  of 
Finance.  Warrants  are  then  drawn  for  the  amounts  due  to 
contractors,  countersigned  by  the  Auditor  and  mailed  direct  from 
the  Department  to  the  payees. 

By  Disbursing  Postmasters, — Certain  payments  may  be  author- 
ized by  the  Postmaster  General  to  be  made  by  postmasters  desig- 
nated as  disbursing  officers.  The  Department  authorizes  and 
directs  disbursing  postmasters,  one  in  each  State,  to  pay  the 
monthly  salaries  of  rural  delivery  carriers.  In  addition  thereto 
the  Department  authorizes  other  postmasters  who  are  designated 
as  disbursing  officers,  to  pay  the  salaries  of  railway  mail  clerks, 
and  in  some  instances  the  salaries  of  postoffice  inspectors  and 
other  employes  of  the  postal  service.  When  the  receipts  of  an 
office  are  not  sufficient  to  meet  the  pay  rolls  authorized  by  the 
Department,  the  postmaster  is  instructed  to  make  an  estimate 
of  the  deficiency  and  forward  a  requisition  to  the  Postmaster 
General  therefor.  An  accountable  warrant  drawn  on  the  Treas- 
urer of  the  United  States  for  the  sum  needed  is  then  forwarded  to 
the  postmaster  who  deposits  the  same  in  a  depository  bank  and 
issues  his  check  in  payment  of  such  salaries. 

By  Transfer  Draft. — If  a  balance  appears  to  be  due  a  post- 
master after  his  term  of  office  has  expired  and  his  accounts  have 
been  adjusted,  the  Auditor  certifies  the  amount  due  and  upon 
this  certification  a  transfer  draft  issued  by  the  Department  and 
drawn  on  a  postmaster  in  the  State  in  which  the  former  post- 
master resides,  is  forwarded  in  settlement  of  the  account. 

How  Appropriations  Are  Made  for  the  Department 

Appropriations  for  the  Post  Office  Department  are  made  by  the 
Congress  upon  estimates  submitted  to  the  Postmaster  General 
by  the  heads  of  the  various  bureaus  according  to  the  nature  and 
needs  of  the  service.  After  examination  and  approval  by  the 
Postmaster  General,  these  estimates  are  sent  to  the  Secretary  of 
the  Treasury  where  the  estimates  for  all  Departments  of  the 
Government  are  assembled  for  transmission  to  Congress.  Hear- 
ings on  the  estimates  submitted  by  the  Postmaster  General  are 
then  held  by  the  House  Committee  on  Post  Offices  and  Post  Roads, 
the  members  of  which  go  over  the  items  in  detail,  the  various 


The  American  Postal  Service  23 

bureau  heads  being  in  attendance  to  explain  more  fully,  if  need  be, 
the  public  necessity  and  requirements  of  the  estimates  submitted. 
The  Postmaster  General  may  also  be  called  upon  to  explain  these 
estimates  if  the  Committee  so  desire.  At  the  conclusion  of  these 
hearings,  the  result  of  such  inquiry  and  the  recommendations  of 
the  Post  Office  Committee  are  submitted  to  Congress  and  are 
considered  in  Committee  of  the  Whole.  When  the  post  office  bill 
is  under  consideration  and  upon  its  passage  through  the  House 
of  Representatives  it  is  in  charge  of  the  Chairman  of  the  Committee 
on  Post  Offices  and  Post  Roads,  who  answers  all  inquires  made  and 
defends  the  action  of  his  committee  in  submitting  these  estimates 
to  Congress  for  its  action  and  approval. 

Auditor  for  the  Post  Office  Department 

All  accounts  of  the  Post  Office  Department  are  audited  by  the 
Sixth  Auditor  of  the  Treasury,  who  is  the  Auditor  for  the  Depart- 
ment. When  the  Department  was  reorganized  in  1836  this 
position  was  created  for  the  purpose  of  relieving  the  Postmaster 
General  of  the  responsibilities  of  this  particular  form  of  official 
duty.  The  statutes  define  these  duties  which  are  numerous  and 
important,  the  fiscal  relations,  owing  to  the  great  growth  of  the 
postal  service,  being  of  such  magnitude  and  involving  such  an 
amount  of  detail  that  the  office  has  become  one  of  the  greatest 
of  the  auditing  branches  of  the  Treasury  Department.  The 
annual  reports  of  the  Auditor  to  the  Postmaster  General  show  the 
financial  condition  of  the  Department  at  the  close  of  each  fiscal 
year  and  are  a  part  of  the  Postmaster  General's  report  to  Congress. 
A  very  large  force  of  clerks  is  required  to  conduct  the  operations 
of  the  office  and  the  most  approved  devices  and  methods  are  used 
to  facilitate  the  dispatch  of  business.  For  greater  convenience 
the  office  of  the  Auditor  is  lodged  with  the  Post  Office  Department. 


CHAPTER  III 

Department   Operations— General  and   Detailed  De- 
scriptions and  Cost  of  Service 

History  of  Rural  Free  Delivery 

The  subject  of  Rural  Free  Delivery  occupies  so  much  public 
attention  both  in  the  press  and  among  the  people,  and  the  Depart- 
ment has  shown  such  interest  in  the  matter  and  done  so  much  to 
make  the  service  popular  and  attractive  as  a  public  measure,  that 
it  is  worthy  of  some  considerable  space  in  a  work  devoted  entirely 
to  postal  affairs.  Aside  from  tabular  work  which  has  no  proper 
place  in  descriptive  accounts  of  departmental  operations,  a  very 
good  idea  of  what  rural  delivery  is  and  aims  to  accomplish,  may  be 
gathered  from  the  articles  which  follow  this  introductory  reference. 

The  history  of  Rural  Delivery  dates  from  January  5,  1892, 
when  Hon.  James  O'Donnell,  Member  of  Congress  from  Michigan, 
introduced  the  first  bill  in  Congress  relating  to  the  subject.  This 
bill  carried  an  appropriation  of  $6,000  but  failed  of  passage. 
March  3,  1893,  Congress  appropriated  $10,000  for  experimental 
purposes  but  this  sum  together  with  $20,000  appropriated  July 
16,  1894,  for  the  same  purpose,  was  not  used,  Postmaster  General 
W.  S.  Bissell,  of  New  York,  deeming  the  amount  insufficient. 
On  June  9,  1896,  $10,000  together  with  the  prior  appropriation 
of  $30,000  was  made  available,  and  experimental  rural  free  de- 
livery service  was  established  by  Postmaster  General  Wilson,  of 
West  Virginia,  on  October  1,  1896,  simultaneously,  on  three 
routes  in  that  State — Charlestown,  Uvilla  and  Halltown. 

At  the  close  of  business  June  30,  1916,  there  were  42,927  rural 
routes  in  operation,  42,766  carriers  covering  1,083,070  miles  and 
serving  5,719,062  families,  representing  a  total  population  of 
26,307,686,  and  at  the  cost  of  $51,715,616.  Aggregate  daily 
travel  by  rural  carriers,  1,063,305  miles.  Average  length  of  rural 
routes,  24.96  miles.  The  first  complete  county  service  was  in 
Carroll  County,  Maryland.  Available  reports  show  that  between 
the  years  1905  and  1909,  delivery  of  mail  on  rural  routes  increased 
87  per  cent.  In  1913,  2,745,319,372  pieces  of  mail  were  delivered; 
in  1915,  3,193,326,480;  1916,  3,022,755,601.  Cost  of  delivery  per 
patron:  1915,  $2,060;  1916,  $1,966.  Average  annual  pay  of 
carriers  was  $1,162.50,  including  motor  vehicle  service.  For 
horse-drawn  routes  the  average  was  $1,155.48. 


The  American  Postal  Service  25 

Rural  Delivery  Defined 
The  doubts,  uncertainties  and  the  delicate  questions  involved 
in  the  early  days  of  rural  delivery  when  the  subject  was  viewed 
with  concern,  cautiously  tested  as  an  experiment  and  its  extension 
in  various  directions  regarded  as  perhaps  outside  the  bounds  of 
original  intent  and  therefore  to  be  approached  with  considerable 
reserve,  is  well  illustrated  when  petitions  from  Utah  and  other 
mining  sections  of  the  West  for  the  establishment  of  such  service 
to  supply  isolated  communities  devoted  exclusively  to  mining, 
raised  the  question  in  the  administration  of  Postmaster  General 
Charles  Emory  Smith  as  to  the  proper  definition  of  rural  free 
delivery.  It  was  held  by  the  First  Assistant  Postmaster  General 
that  the  term  "rural"  meant  communities  not  included  in  cities 
or  incorporated  villages,  and  that  it  did  not  necessarily  imply  that 
the  persons  so  situated  should  be  engaged  in  farming  pursuits. 

The  Struggle  for  Rural  Free  Delivery 
The  aim  and  purpose  of  rural  delivery  was  to  place  the  rural 
resident  on  something  like  equal  grounds  with  the  dweller  in  the 
cities  so  far  as  mail  facilities  were  concerned,  not  exactly  so,  for 
conditions  were  dissimilar,  but  to  such  reasonable  extent  as 
circumstances  would  permit.  For  years  there  had  been  a  grow- 
ing discontent  among  farmers  and  the  people  in  the  smaller  towns 
and  villages  because  of  the  postal  advantages  afforded  to  the 
cities,  and  the  more  populous  communities.  They  felt  themselves 
deprived  of  opportunities  and  benefits  which  others  enjoyed  and 
could  not  understand  why  the  accident  of  location  should  make 
such  a  difference.  Postal  service  was  intended  for  all  the  people, 
not  a  part,  not  merely  for  those  who  had  chosen  to  live  in  cities 
but  for  those  outside  as  well.  This  desire  to  share  at  least  in 
the  benefits  so  freely  accorded  to  others  became  at  length  so  out- 
spoken and  insistent  that  recognition  could  no  longer  be  denied 
and  the  matter  was  finally  introduced  into  Congress  and  an  at- 
tempt made  to  secure  legislation  upon  the  subject. 

The  magnified  diflSculties  of  such  a  proposition  as  rural  delivery 
contemplated  had  long  deterred  action,  and  when  the  attempt  was 
finally  made,  the  question  was  viewed  with  such  caution  and 
approached  with  such  hesitation  and  the  apprehension  of  an 
unknown  and  indeterminate  expense  so  bound  up  with  possible 
failure  of  real  benefit  in  proportion  to  cost,  that  postal  authorities 


26  The  American  Postal  Service 

hesitated  to  take  the  initial  step.  Even  when  a  sum  of  money  was 
appropriated  the  task  seemed  too  great  for  successful  accomplish- 
ment, and  it  was  only  when  further  delay  was  vigorously  opposed 
that  the  step  was  taken.  Congress  voted  $40,000  to  make  the 
experiment  and  with  that  to  begin  with  active  measures  were 
taken  and  the  rest  is  postal  history. 

4  The  Advantages  of  Rural  Delivery 

The  question  has  frequently  been  asked  to  what  extent  and  in 
what  way  has  rural  delivery  service  benefited  the  country  sections 
of  the  United  States.  Many  magazine  articles  have  been  written 
to  show  the  general  advantages  it  affords  in  rendering  rural  condi- 
tions more  tolerable  and  enduring  the  inconveniences  to  which 
such  life  is  subject.  In  one  particular  at  least,  it  has  been  of  im- 
mense advantage  and  that  alone  has  secured  it  great  public  favor. 
It  has  given  the  farmer  his  daily  paper.  This  great  educator  of 
our  modern  civilization,  an  almost  indispensable  necessity  of  our 
times,  was  practically  denied  the  rural  resident  before  the  advent 
of  this  service,  but  now  the  avenues  of  communication  are  so  far- 
reaching  and  the  service  so  well  conducted,  that  publishers  of 
daily  papers  have  not  only  been  able  to  greatly  extend  their  circula- 
tion in  every  direction,  but  actually  to  bring  the  morning  news- 
paper to  the  farmer's  door  at  an  hour  which  places  him  on- an  equal 
footing  with  his  city  neighbor  in  all  the  advantages  which  early 
news  can  give,  but  which  is  of  special  advantage  to  the  farmer 
who  has  something  to  sell  and  is  thus  directed  to  the  best  market 
for  his  purpose. 

The  combined  opportunity  which  both  publisher  and  sub- 
scriber now  enjoy  in  country  sections  reached  by  rural  delivery 
and  the  use  made  of  it  is  forcibly  illustrated  in  a  recent  statement 
published  in  a  South  Dakota  paper.  A  rural  carrier  stated  that 
when  he  started  service  some  years  ago  there  were  but  three  farmers 
on  his  two  routes  who  took  daily  papers.  There  are  now  something 
like  200  dailies  taken  by  patrons  on  these  routes,  some  farmers 
subscribing  for  two  or  three.  j 

What  rural  delivery  has  done  in  other  directions  may  be  summed 
up  as  follows :  It  has  broadened  the  field  of  industrial  opportunity, 
touched  as  if  with  magic  power  the  possibilities  of  human  endeavor, 
and  transformed  conditions  to  a  degree  almost  marvelous.  It 
has  brought  special  delivery  almost  to  the  door;  secured  good  roads 


The  American  Postal  Service  27 

and  maintains  them  by  oflScial  interest  and  concern;  has  attracted 
the  attention  of  the  various  States  to  this  question  and  obtained 
results;  it  has  made  farm  lands  more  valuable  and  contributed  to 
increased  production;  it  has  abridged  time  by  rapid  communica- 
tion; brightened  all  environment,  and  made  ordinary  dull  routine 
interesting  and  attractive;  it  has  lessened  toil  by  the  instructive 
suggestions  which  Government  experiment  and  inquiry  affords, 
and  has  made  the  home  a  center  of  influence  and  crowns  domestic 
life  with  all  that  makes  for  peace  and  contentment. 

Rural  Delivery  as  Viewed  by  President  McKinley 

The  favorable  opinion  entertained  of  the  advantages  of  the  rural 
free  delivery  service  when  it  was  yet  in  the  experimental  stage  and 
doubts  were  expressed  as  to  its  practical  benefit,  cost  considered, 
is  well  set  forth  by  President  McKinley  in  his  annual  message  to 
Congress,  December  3,  1900. 

"This  service  ameliorates  the  isolation  of  farm  life,  conduces 
to  good  roads  and  quickens  and  extends  the  dissemination  of 
general  information.  Experience  thus  far  has  tended  to  allay  the 
apprehension  that  it  would  be  so  expensive  as  to  forbid  its  general 
adoption  or  make  it  a  serious  burden.  Its  actual  application  has 
shown  that  it  increases  postal  receipts,  and  can  be  accompanied 
by  reductions  in  other  branches  of  the  service,  so  that  augmented 
revenues  and  the  accomplished  savings  together  materially  reduce 
the  net  cost." 

The  First  County  Rural  Service 

The  first  full  county  service  was  inaugurated  in  Carroll  County, 
Maryland,  and  at  a  time  when  weather  conditions  made  it  some- 
thing of  an  undertaking.  December  20,  1899,  was  the  date 
selected  and  winter  with  its  storms  and  snow  had  put  the  roads 
in  the  worst  possible  condition.  Sixty-three  post  offices  and 
thirty-five  services  by  star  route  contractors,  were  discontinued 
in  one  day  and  rural  free  delivery  service  substituted.  West- 
minster, then  a  third-class  office,  was  made  the  distributing  center 
but  postal  stations  were  established  in  villages  where  post  offices 
had  formerly  been  located. 

Service  started  with  four  two-horse  postal  wagons  and  with  a 
postal  clerk  in  each  to  issue  money  orders,  register  letters  and  cancel 
stamps  on  the  letter  mail  collected.  These  wagons  supplied  mail 
to  twenty  rural  carriers  at  designated  points  and  brought  all  the 


28  The  American  Postal  Service 

territory  within  easy  and  convenient  reach.  This  initial  service 
first  covered  387  square  miles  of  the  453  in  the  county,  but  soon 
afterward  embraced  it  all. 

The  inauguration  of  so  great  a  change  in  postal  service  created 
antagonism  and  a  strong  delegation  came  to  Washington  to  enter 
protest.  But  the  manifest  advantages  which  soon  began  to  appear, 
silenced  all  opposition,  and  the  great  majority  of  the  protesting 
citizens  withdrew  their  opposition  and  bore  convincing  testimony 
to  the  eflficiency  and  value  of  the  service.  The  cost  of  the  service 
in  the  first  three  months  was  $4,543,  saving  by  service  superseded, 
$2,805,  Increase  of  postal  receipts  was  $1,501.75  leaving  net  cost 
of  the  whole  county  service  for  three  months  at  only  $236. 

This  successful  county  experiment  attracted  wide  attention  and 
full  county  service  was  thereafter  rapidly  established  in  many 
directions. 

Country-wide  Extension,  Rural  Delivery 

The  extension  of  rural  delivery  has  increased  from  year  to  year 
and  the  cost  of  the  service  has  grown  in  corresponding  proportion. 
The  great  next  step  would  be  country-wide  extension,  which  has 
been  frequently  mentioned  on  account  of  the  vast  possibilities 
bound  up  in  such  a  measure.  This  would,  however,  involve  a  very 
considerable  expense.  It  is  estimated  that  to  extend  this  service 
to  all  rural  patrons  wherever  located  would  cost  something  like 
$100,000,000  more.  While  such  complete  service  is  the  logical 
conclusion  of  all  rural  delivery  effort  and  may  be  expected  to 
engage  public  attention  in  the  near  future,  as  it  is  the  only  means 
left  by  which  the  thousands  of  people  now  deprived  of  such  benefits 
can  be  reached  and  accommodated,  such  a  tremendous  advance 
must  be  seriously  considered  before  any  definite  steps  can  be 
taken,  but  rural  delivery  will  never  reach  the  point  of  greatest 
usefulness  until  this  country-wide  extension  is  an  accomplished 
fact  and  people  everywhere  are  permitted  to  equally  enjoy  the 
benefit  which  it  confers. 

How  Rural  Delivery  Enhances  the  Value  of  Farm  Land 
Many  arguments  have  been  advanced  by  the  friends  of  rural 
delivery  to  show  the  almost  immeasurable  value  of  this  service 
to  the  farming  communities  of  the  nation,  but  there  is  one  case 
which  has  come  under  the  notice  of  the  publisher  which  presents 
an  argument  of  such  striking  force  that  it  is  worthy  of  special 
mention. 


I 


The  American  Postal  Service  29 

Mr.  Marion  F.  Holderman,  of  Washington,  D.  C,  states  that  in 
1885  he  bought  135  acres  of  farming  land  three  miles  east  of  Ran- 
toul,  111.,  in  Champaign  County,  for  $44  per  acre,  and  that  in  1901 
rural  delivery  was  established  enabling  the  delivery  of  the  Chicago 
daily  papers  at  his  gate  in  the  morning,  thus  giving  him  all  the 
advantages  of  the  Chicago  market  and  the  opportunity  of  the 
shipment  of  grain,  stock,  and  farm  products  the  same  day  that 
these  published  market  reports  appeared.  This  fact  so  greatly 
enhanced  the  value  of  the  land  through  these  succeeding  years 
that  he  was  able  to  sell  this  property  for  $225  per  acre  on  March  1, 
1917,  thus  netting  him  a  profit  of  $24,435.  No  improvements 
were  made  on  the  farm  except  necessary  repairs  and  painting  of 
the  buildings. 

He  states  that  if  there  had  not  been  rural  delivery  he  would 
have  had  to  go  to  the  post  office  for  his  mail  at  least  twice  a  week 
which  at  the  lowest  estimate  for  the  time  of  the  person,  vehicle, 
and  the  horses  would  have  cost  him  over  $225  per  annum,  and  as 
there  are  105  families  on  the  route  besides  himself,  the  saving  to 
the  patrons  of  the  route  by  this  service  is  over  $23,850  annually, 
besides  the  value  of  the  land  increase,  and  the  many  other  ad- 
vantages which  have  followed. 

Taking  his  estimate  of  saving  to  each  family  along  a  route  and 
allowing  for  six  families  for  each  mile,  three  on  each  side  of  the 
road,  and  there  being  1,037,259  miles  of  rural  delivery  roads  in 
the  United  States,  it  can  be  seen  what  an  aggregate  wonderful 
saving  this  has  made,  not  counting  the  property,  personal  and 
educational  value  of  such  a  service  to  the  people. 

It  will  be  seen  that  by  this  showing  that  the  saving  to  the  patrons 
of  1  mile  of  rural  delivery  service  ($1,350)  will  more  than  pay  what 
it  costs  the  Government  for  a  24-mile  route  at  a  rate  of  $1,200 
per  annum. 

The  Per  Capita  Cost  in  Rural  Delivery 

The  per  capita  cost  in  the  Rural  Delivery  Service  has  been  a 
matter  of  considerable  interest  to  those  who  are  following  the  pro- 
gress and  extension  of  this  branch  of  the  public  service.  The  great 
advance  which  has  been  made  in  this  service  and  the  still  greater 
extent  to  which  it  is  proposed  to  extend  it,  embracing  ultimately 
all  patrons  wherever  located,  naturally  raises  the  question  of  cost 
as  a  whole  and  the  cost  per  patron. 


30  The  American  Postal  Service 

Charles  Emory  Smith,  Postmaster  General  in  1900,  who  was 
one  of  the  staunch  friends  of  rural  delivery  in  its  early  days,  said 
the  gross  cost  could  be  estimated  by  three  methods,  cost  per  square 
mile,  cost  per  capita,  and  cost  per  county.  Adhering  to  the  sub- 
ject in  hand  it  may  be  stated  that  he  found  the  cost  per  capita  at 
that  time  to  be  92.7  serving  a  population  of  about  2,000,000  people 
on  something  less  than  3,000  routes.  There  is  no  reliable  data 
covering  the  period  to  1910  upon  this  subject,  but  taking  an 
estimate  based  upon  close  calculation,  it  is  found  that  notwith- 
standing the  tremendous  growth  of  this  service  during  that  time 
reaching  in  1910  over  41,000  routes  and  accommodating  over 
20,000,000  patrons,  the  cost  per  capita  had  arisen  to  only  1.797, 
and  now  with  nearly  43,000  routes  and  serving  over  26,000,000 
people  as  patrons,  the  cost  per  capita  is  but  1.966.  No  answer 
as  to  cost  considering  the  known  value  of  such  service  could  be 
illustrated  more  forcibly  than  by  the  figures  here  presented.  If 
the  undeniable  benefits  of  rural  service  to  the  people  can  be  given 
with  ever-increasing  eflSciency  at  a  cost  no  greater  than  that,  it 
can  be  reasonably  assumed  that  the  people  who  live  upon  the  farms 
of  the  United  States  and  endure  the  hardships  of  such  life  with  its 
many  attendant  inconveniences  are  certainly  entitled  to  their 
share  of  public  benefit,  especially  when  as  shown,  the  cost  is  so 
small  compared  to  the  inmeasurable  advantages  afforded. 

The  city  delivery  service  of  the  nation  with  its  34,000  carriers 
costs  now  over  $43,000,000.  No  computation  of  cost  per  capita 
in  this  service  has  ever  been  made  and  relative  comparison  cannot 
be  given  but  such  figures  as  are  available  show  that  in  1911  the 
per  capita  cost  of  serving  the  people  in  the  cities  of  the  country 
was  $1.40  and  that  in  1916  this  cost  had  increased  to  $1.75. 
When  the  comparatively  comfortable  conditions  under  which 
city  delivery  is  conducted  is  considered,  and  the  proportionate 
difference  in  appropriation  taken  into  account,  it  will  appear  that 
the  excess  of  cost  in  rural  delivery  is  no  greater  than  might  natu- 
rally be  expected  from  the  peculiar  nature  of  the  service,  the  terri- 
tory to  be  covered,  and  the  almost  insurmountable  conditions 
with  which  it  has  to  contend.  Indeed,  it  is  a  matter  of  surprise 
that  the  cost  of  service  per  capita  under  the  circumstances  is  so 
small. 

To  keep  down  the  public  expense  to  so  low  a  figure  while  extend- 
ing this  service  to  millions  of  people  heretofore  denied  this  privi- 


The  American  Postal  Service  31 

lege,  should  be  a  matter  of  congratulation  and  encourage  the  hope, 
as  well  as  assure  the  ultimate  end  towards  which  all  rural  delivery 
aims  and  activities  are  directed,  viz.,  country-wide  extension. 

Some  Necessary  Conditions  of  Rural  Delivery 
England,  France  and  Germany  antedate  us  in  the  establishment 
of  rural  delivery,  but  the  service  there  is  bureaucratic,  originating 
always  with  the  post  office  officials  and  dominated  by  red  tape 
requirements.  Ours  is  democratic  and  cooperative.  It  is  estab- 
lished upon  petitions  sent  through  Representatives  in  Congress, 
irrespective  of  party  affiliation.  However,  any  application  re- 
ceived from  a  postmaster,  or  individual,  showing  reasonable 
warrant  for  the  establishment  of  a  rural  route  in  any  community 
will  be  given  careful  consideration  by  the  Department.  It  is 
absolutely  free,  the  only  conditions  the  Government  makes  in 
establishing  and  maintaining  service  is  that  those  who  desire  to 
avail  themselves  of  its  beneficent  provisions  shall  do  their  part 
towards  rendering  it  of  public  advantage,  viz.,  by  mending  their 
roads,  building  bridges  over  unbridged  creeks  and  streams,  see 
that  the  county  commissioners  give  prompt  attention  to  such 
needs  and  provide  themselves  with  suitable  receiving  boxes,  con- 
veniently placed  along  the  roadside  that  the  carrier  can  readily 
deposit  and  collect  mail  without  alighting  from  his  conveyance. 
Patrons  can  do  much  towards  aiding  the  Government  in  this  matter 
and  they  doubtless  do  their  bit  in  a  willing  and  accommodating 
spirit. 

Annual  Cost  Per  Patron,  and  Pieces  Handled  in  Rural 
Delivery  Service 
A  study  of  the  annual  cost  per  patron  in  the  rural  delivery 
service  for  the  year  1916,  shows  that  in  the  States  of  California 
and  Utah,  and  in  the  District  of  Columbia,  it  was  less  than  $1  each. 
In  the  States  of  Alabama,  Arizona,  Arkansas,  Colorado,  Connecti- 
cut, Delaware,  Florida,  Georgia,  Idaho,  Kentucky,  Louisiana, 
Maryland,  Massachusetts,  Mississippi,  New  Jersey,  North  Caro- 
lina, Oregon,  Pennsylvania,  Rhode  Island,  South  Carolina, 
Tennessee,  Texas,  Virginia,  Washington  and  West  Virginia,  it 
was  more  than  $1  and  less  than  $2.  In  Illinois,  Indiana,  Iowa, 
Kansas,  Maine,  Michigan,  Minnesota,  Missouri,  Montana, 
Nebraska,  Nevada,  New  Hampshire,  New  Mexico,  New  York, 
Ohio,  Oklahoma,  Vermont,  Wisconsin  and  Wyoming,  it  was  more 


4 


3£  The  American  Postal  Service 

than  $2  and  less  than  $3,  and  in  North  and  South  Dakota  it  was 
over  $3  and  less  than  $4.  Annual  cost  of  service  for  patron  de- 
creased from  2,066  in  1915  to  1,966  in  1916. 

The  annual  cost  per  piece  of  mail  handled  on  rural  routes  was 
lowest  in  the  States  of  Arizona,  California,  Connecticut,  Massa- 
chusetts, Rhode  Island,  Utah,  and  the  District  of  Columbia, 
and  highest  in  Arkansas,  Florida,  Mississippi,  North  and  South 
Carolina,  and  Tennessee.  Annual  cost  per  price  handled  was 
.0144  in  1915  and  .0150  in  1916. 

The  States  which  had  the  largest  number  of  patrons  served  on 
rural  routes  (over  a  million  in  each)  were  Georgia,  Illinois,  Indiana, 
Iowa,  Michigan,  Missouri,  New  York,  North  Carolina,  Ohio, 
Pennsylvania,  Tennessee,  and  Texas.  The  States  which  had  less 
than  100,000  patrons  served  were  Arizona,  Delaware,  Montana, 
Nevada,  New  Mexico,  Rhode  Island,  Utah,  Wyoming  and  the 
District  of  Columbia. 

Population  and  Extension  of  Rural  Service 
Relative  to  the  provision  in  the  act  making  appropriations  for 
the  rural  service  for  the  fiscal  year  1917,  "that  rural  mail  delivery 
shall  be  extended  so  as  to  serve  as  nearly  as  practicable  the  entire 
rural  population  of  the  United  States,"  it  should  be  stated  that 
rural  delivery  service  covered,  at  the  end  of  the  fiscal  year  1916, 
1,037,259  miles  of  roads,  while  star-route  service  was  operated 
upon  139,634  miles. 

It  is  estimated  that  there  are  2,199,646  miles  of  public  roads  in 
the  United  States,  so  that  there  remain  1,022,753  miles  or  roads  on 
which  no  mail  service  is  in  operation. 

At  the  end  of  the  fiscal  year  1916  an  estimated  population  of 
26,307,686  was  served  by  rural  routes,  520,000  by  star  routes, 
and  approximately  10,000,000  by  fourth-class  post  offices.  The 
total  rural  population  in  the  United  States  is  placed  at  43,991,722. 
It  will  be  seen,  therefore,  that  while  83  per  cent  of  the  rural  popula- 
tion is  receiving  convenient  mail  service,  47  per  cent  of  the  rural 
road  mileage  is  uncovered. 

Speeding  Up  the  Rural  Service  by  Motor  Vehicle 
This  is  a  time  of  intense  activity.    Action  is  demanded  every- 
where and  "get  there"  is  the  cry  of  the  day.    Brevity  and  speed 
are  in  close  fellowship  in  the  business  world  and  competition  spurs 
on  towards  the  greatest  possible  endeavor  in  any  direction  where 


The  American  Postal  Service  33 

advantage  lies.  Expedients  no  longer  serve.  Only  that  which  is 
best  and  in  the  highest  degree  efficient,  can  hope  to  survive.  The 
introduction  of  the  motor  car  in  transforming  conditions  and  pro- 
ducing wonderful  changes  is  characteristic  of  this  pushing  age. 
Time  is  money.  The  motor  has  demonstrated  its  value,  and 
dominates  the  field  of  all  far-reaching  enterprise.  Business  men 
recognize  its  tremendous  possibilities  and  advantageous  help  in 
saving  time  and  abridging  distance.  It  spells  efficiency  in  com- 
mercial life  and  men  strain  a  point  to  bring  themselves  up  along- 
side their  pushing  and  wideawake  neighbors  in  availing  themselves 
of  this  great  modern  aid  to  the  completest  equipment.  The  farmer 
realizing  what  it  can  accomplish  in  his  peculiar  domain,  has  has- 
tened to  supply  himself  with  what  will  contribute  to  his  profit, 
and  he  finds  in  this  great  adjunct  to  energetic  industrial  life  the 
means  of  increasing  his  business  and  enlarging  his  vision  of  oppor- 
tunity and  desire. 

Motor  vehicle  service  is  of  course  an  innovation  upon  the  24-mile 
horse-drawn  route,  and  as  any  innovation  upon  old-established 
custom  may  expect  to  meet  objection  in  the  administration  of 
public  affairs,  especially  when  such  an  innovation  contemplates  a 
readjustment  of  routes  and  a  possible  reduction  of  carriers,  ob- 
jection was  raised  in  some  quarters,  but  the  desire  to  secure  all 
the  benefit  which  the  parcel  post  could  give  by  the  opportunity 
afforded  by  zone  extension,  was  a  determining  factor  in  the  case, 
and  the  Postmaster  General,  availing  himself  of  the  power  vested 
in  him  by  act  of  Congress,  ordered  its  establishment,  due  regard 
being  had  to  the  limitations  and  conditions  under  which  it  could 
be  operated.  Experience  has  justified  the  wisdom  of  such  action. 
Motor  vehicles  were  accordingly  introduced  into  the  rural  service 
in  1915  to  meet  this  demand  for  greater  expedition  in  service  and 
the  transportation  of  increased  amounts  of  parcel  post  and  mail 
matter  on  extended  routes  and  principally  from  the  larger  cities. 
These  routes  must,  however,  be  50  miles  in  length  and  the  compen- 
sation is  fixed  at  not  more  than  $1,800  per  annum,  the  carriers 
to  furnish  and  maintain  their  own  motor  vehicles.  On  June  30, 
1916,  500  of  such  routes  were  in  operation  with  a  total  length  of 
26,878  miles,  averaging  53.756  miles  per  route,  with  an  annual 
cost  of  $877,824,  or  an  average  of  $1,755.65  per  route.  These 
motor  routes  superseded  horse-drawn  vehicle  service  formerly 
costing  $1,093,106  a  year,  or  an  annual  saving  of  $5 15,282.     Motor 


84  The  American  Postal  Service 

routes  are  of  especial  benefit  in  sections  where  railroad  facilities 
are  lacking.  The  greater  distance  covered  by  motor  routes  makes 
it  possible  for  a  much  larger  number  of  persons  in  given  localities 
to  communicate  with  one  another  on  the  same  day,  eliminating 
the  necessity  for  taking  the  mail  to  postoffices  for  redispatch  and 
in  some  instances  transshipment  over  one  or  more  railroads. 
Better  facilities  are  also  afforded  for  the  transportation  of  pro- 
ducts of  the  farm.  Indianapolis,  Ind.,  is  a  conspicuous  example 
of  the  efficiency  of  this  service  in  reducing  postage;  a  20-pound 
package  mailed  on  a  rural  route  from  one  office  in  Marion  County 
addressed  to  a  patron  of  a  rural  route  on  another,  which  would 
have  cost  24  cents,  can  now  be  carried  for  15  cents,  and  a  50-pound 
package  from  one  point  to  another,  the  cost  of  which  would  have 
been  54  cents  will  now  cost  but  30  cents. 

Village  Delivery 

In  furtherance  of  the  desire  of  the  Government  to  do  every- 
thing in  its  power  to  oblige  and  accommodate  the  people  of  the 
country  and  enlarge  every  privilege  which  could  advance  their 
interests  or  provide  for  their  comfort,  the  question  of  the  exten- 
sion of  village  delivery,  for  which  there  has  been  considerable 
demand,  but  which  has  heretofore  received  little  encouragement, 
was  taken  up  with  a  view  of  securing  such  action  from  Congress 
as  would  allow  further  extensions  to  be  made,  the  original  appro- 
priation being  too  limited  for  the  purpose. 

Between  the  very  great  facilities  afforded  the  dwellers  in  the 
cities  and  the  almost  equally  great  accommodation  shown  to  those 
in  the  rural  sections,  village  delivery  was  but  imperfectly  con- 
sidered and  the  benefits  and  advantages  which  a  more  direct 
attention  to  these  needs  could  have  secured,  was  allowed  to  remain 
in  abeyance,  or  at  least  not  given  the  attention  it  deserved. 

But  the  claim  of  the  residents  of  small  towns  to  equal  privileges 
with  more  favored  localities  was  at  length  recognized  and  village 
delivery  which  was  established  and  put  into  operation  in  1912,  ^, 
was  extended  until  280  of  such  towns  now  have  this  accommoda-™! 
tion,  employing  400  carriers.    The  entrance  salary  paid  village     -' 
delivery  carriers  is  at  the  rate  of  $600  per  annum,  and  increased 
to  $690  per  annum  after  twelve  months  of  satisfactory  service. 
Only  communities  where  the  annual  post  office  receipts  amount 
to  $5,000  are  entitled  to  this  service. 


The  American  Postal  Service  35 

Carriers  appointed  at  third  class  offices  are  not  subject  to  civil 
service  rules  as  such  offices  are  not  classified.  When  the  receipts 
amount  to  $8,000  per  annum,  the  office  is  advanced  to  second 
class  and  the  village  delivery  carriers  are  given  a  civil  service 
status. 

City  Delivery 

In  1864  the  number  of  city  delivery  offices  was  66,  number  of 
carriers  685,  cost  of  service,  1864,  $317,063.20.  In  1916  the 
number  of  offices  was  1,864,  number  of  carriers  34,114,  and  the 
cost  of  service  $43,136,818.  Average  annual  salaries  of  carriers 
for  the  past  four  years  has  increased  from  $1,080.22,  to  $1,115.46. 
Carriers  enter  the  service  at  a  salary  of  $800  per  annum  and  are 
promoted  annually  on  their  service  record  through  the  various 
grades  until  they  reach  the  salary  of  $1,100  at  first  class  offices, 
and  $1,000  at  offices  of  the  second  class,  after  which  promotion 
depends  upon  their  exceptional  efficiency. 

Star  Routes 

June  30,  1916,  the  number  of  star  routes  was  11,187,  length  in 
miles,  147,167,  average  cost  per  mile  of  length  of  routes  e$54.16, 
per  mile  of  travel  $0.1026.  In  the  renewal  of  contracts  on  certain 
routes  in  the  western  States  under  new  form  of  advertisement 
there  was  a  reduction  in  the  cost  of  operation  of  $130,000. 

Star  routes  are  so-called  because  originally,  a  "star"  appeared 
on  the  advertisements  for  contract  bidding  to  distinguish  them 
from  other  contracts  and  because  of  the  words  "with  due  celerity, 
certainty  and  security"  which  appeared  in  connection  with  such 
contract  service.  The  purpose  of  star  route  service  is  to  serve 
post  offices  off  the  line  of  railroad  travel  and  incidentally  such 
families  as  may  live  between  those  post  offices  who  erect  boxes  or 
hang  out  satchels  to  receive  their  mail,  also  to  collect  mail  where 
proper  provision  has  been  made  for  the  purpose. 

No  bid  submitted  under  an  advertisement  for  star  route  service 
will  be  considered  unless  the  bidder  shall  agree  in  his  bid  that  in 
the  event  of  the  contract  being  awarded  to  him  he  will  reside  on  or 
contiguous  to  the  route  and  give  his  personal  supervision  to  the 
performance  of  the  service. 

Postal  Savings 
The  postal  savings  system  was  inaugurated  January  3,  1911. 
In  June,  1916,  the  number  of  depositors  was  602,937  and  the 


36  The  American  Postal  Service 

balance  to  the  credit  of  depositors  was  $86,019,885.00.  The 
denominations  of  postal  notes  or  certificates  are  $5.00,  $10.00, 
$20.00,  $50.00  and  $100.00,  and  they  may  be  purchased  at  any 
postal  depository.  The  interest  allowed  by  the  Government  is 
2  per  cent.  These  deposits  may  be  exchanged  in  amounts  of 
$20.00  and  multiples  thereof,  for  23^  per  cent  U.  S.  Postal  Savings, 
registered  or  coupon  bonds.  Postal  certificates  are  made  at  the 
Bureau  of  Engraving  and  Printing. 

Money  Order  System 
Dr.  Charles  F.  Macdonald,  who  had  been  greatly  interested  and 
had  taken  an  active  part  in  the  establishment  of  the  money  order 
system,  was  upon  its  inauguration  in  May,  1864,  appointed  as 
superintendent.  He  is  often  called  the  "father  of  the  money  order 
system"  and  doubtless  with  some  considerable  justice.  He 
labored  untiringly  to  make  it  a  success,  and  upon  his  death  in  1902 
it  was  found  that  he  had  bequeathed  $2,000  to  the  United  States 
to  be  used  by  the  Postmaster  General  in  the  improvement  of  that 
service,  and  Congress  by  act  of  October  22,  1913,  accepted  the 
gift,  and  the  commission  appointed  by  the  Postmaster  General  in 
furtherance  of  the  act  recommended  that  a  vignette  of  Dr. 
Macdonald  be  placed  on  the  money  order  draft  forms.  This 
recommendation  was  approved  by  the  Postmaster  General  and 
carried  into  effect.  Orders  issued:  1916,  121,636,818.  Amount, 
$719,364,950.46.  Orders  paid  and  repaid:  number,  122,379,113. 
Amount,  $720,584,719.58.  Net  money  order  revenue  for  1916, 
$6,821,499.75. 

Stamp  Books 

The  need  for  some  convenient  way  of  handling  postage  stamps 
when  more  were  purchased  than  immediately  required  and  which 
need  was  long  felt  and  operated  as  a  bar  against  the  purchase  of 
stamps  in  any  considerable  quantity  for  occasional  use,  led  the 
Hon.  Edwin  C.  Madden,  Third  Assistant  Postmaster  General, 
to  consider  some  method  of  remedying  this  lack,  and  on  March 
26, 1900,  after  considerable  experiment  with  paper  of  various  kinds 
to  suit  the  purpose,  devised  the  stamp  book  now  in  use  of  which 
millions  of  copies  are  annually  sold.  In  1916,  the  Department 
issued  28,005,930  of  these  books  and  the  demand  for  them  is 
constantly  increasing.  These  books  are  made  in  six  different 
kinds — ^books  containing  24  and  96  stamps  of  the  1-cent  denomina- 


The  American  Postal  Service  37 

tion;  12,  24  and  48,  of  the  2-cent  denomination,  and  a  book  con- 
taining both  1-cent  and  2-cent  stamps,  viz.,  24  1-cent,  and  24 
2-cent. 

In  this  connection  it  may  be  but  just  to  divide  the  credit  of  the 
origin  of  the  stamp  book  with  Captain  Bain  of  the  Bureau  of 
Engraving  and  Printing,  who,  it  is  said,  had  the  project  in  mind 
for  some  time  previous  to  its  inauguration  as  a  pubUc  accommoda- 
tion. Mr.  Madden  is  usually  given  the  credit  but,  as  stated,  the 
credit  may  perhaps  be  fairly  divided,  as  it  is  understood  that 
both  these  gentlemen  collaborated  in  the  perfection  of  the  project. 

Postal  Cards 
The  postal  cards  now  so  generally  used  at  once  sprang  into 
public  favor  when  adopted  in  this  country  in  1873.  Their  use 
has  not  only  been  a  means  of  carrying  intelligence  in  easy  and 
convenient  form,  but  has  contributed  to  commercial  enterprise 
in  many  forms,  and  many  directions  as  the  growing  demand  for 
them  in  the  business  world  amply  indicates.  The  number  issued 
to  postmasters  in  1916  was  1,047,894,800  and  the  value  of  these 
cards  was  $10,784,307.00. 

Division  of  Stamps 
Postage  stamps  and  other  stamped  paper 

on  hand  in  post  offices,  July  1, 1915.  .$104,035,823.48 
Stamped  paper  charged  to  postmasters .  .  287,352,176 .  84 
Sales  by  postmasters,  July   1,   1915,  to 

June  30,  1916 277,728,025 .  20 

Stamped  paper  on  hand  in  post  offices, 

June  30,  1916 112,332,714.66 

The  reduction  in  stamp  sales  which  followed  the  outbreak  of 
the  war  in  Europe  and  the  gradual  recovery  is  shown  in  the 
increases,  viz.,  for  the  quarter  ending  September  30, 1915,  the  per- 
centage of  increase  was  3.01;  for  December  31,  1915,  it  was  9.04; 
for  March  31,  1916,  it  was  9.87;  for  June  30,  1916,  it  was  11.25. 

Interesting  information  concerning  the  manufacture  of  stamps, 
etc.,  is  given  in  the  article  relating  to  the  Bureau  of  Engraving 
and  Printing  on  page  46. 

Division  of  Classification 

This  division  is  charged  with  the  consideration  of  all  questions 
relating  to  the  classification  of  matter  admitted  to  the  mails, 
intended  or  deposited  for  mailing,  including  the  determination  of 
the  admissibility  of  publications  to  the  second  class  of  mail  matter, 


S8  The  American  Postal  Service 

the  limit  of  weight  and  size  of  mail,  penalty  envelopes  and  the 
franking  privilege.  This  office  is  in  the  Bureau  of  the  Third 
Assistant  Postmaster  General  to  whom  all  questions  upon  this 
and  kindred  subjects  should  be  addressed. 

Purchasing  Agent 

Under  the  direction  and  control  of  the  Postmaster  General,  this 
officer  has  the  supervision  and  purchase  of  all  supplies  for  the 
Department,  whether  under  contract  or  not,  for  the  Post  Office 
Department  proper  or  for  any  branch  of  the  postal  service.  The 
Postal  Laws  and  Regulations  provide  that  a  Bureau  officer  con- 
trolling an  appropriation,  may  authorize  postmasters  and  other 
postal  officials  to  purchase  supplies  chargeable  to  that  appropria-j 
tion  subject  to  the  approval  of  the  purchasing  agent  in  eachi 
instance. 

The  Dead  Letter  Office 

All  undeliverable  mail  matter  comes  within  two  classes,  unmail- 
able  and  unclaimed.  The  first  comprises  such  as  is  not  suffi- 
ciently prepaid  or  so  incorrectly,  insufficiently  or  illegibly  ad- 
dressed that  the  destination  could  not  be  discovered.  All  letters 
of  this  class  containing  matter  of  value  is  classified  and  recorded 
and  a  considerable  amount  of  money  can  thus  be  returned  to  the 
owner.  The  larger  part  of  such  unmailable  matter  contains  ar- 
ticles of  merchandise,  photographs,  etc.  The  undeliverable  let- 
ters are  those  that  though  properly  prepaid  and  correctly  addressed 
are  unclaimed,  not  taken  out  of  the  office,  though  effort  had  been 
made  by  advertisement  to  find  the  owner. 

Letters  and  parcels  received  for  1916  amounted  to  10,839,890. 
Of  this  number  3,677,194  pieces  were  delivered,  101,485  filed, 
7,019,436  destroyed  and  41,775  under  treatment.  Checks,  drafts, 
money  orders  and  other  valuable  papers  of  the  face  value  of 
$2,303,119.56  were  found  in  undelivered  letters,  practically  all 
of  which  was  restored  to  the  owners.  The  net  revenue  from  the 
sale  of  undeliverable  articles  of  merchandise  and  currency  found 
loose  in  the  mails,  etc.,  aggregated  $53,665.69.  Advertised  letters 
returned  from  the  Dead  Letter  Office  now  require  the  payment  of 
1  cent,  the  revenue  of  this  for  the  past  six  months  amounted  to 
$11,000,  making  net  revenue  $64,665.69,  or  within  $10,000  of  the 
whole  amount  required  to  conduct  the  operations  of  the  office. 

Formerly  all  dead  matter  came  to  Washington  for  examination 


The  American  Postal  Service  S9 

and  disposition.  Now  there  are  twelve  large  cities  in  the  country 
geographically  arranged,  to  which  dead  matter  is  sent  in  addition 
to  what  is  received  in  Washington.  This  has  made  it  possible  to 
largely  reduce  the  force  in  the  Washington  office.  The  establish- 
ment of  the  Dead  Letter  Office  dates  back  to  18^5. 

Mail  Locks 

There  are  four  kinds  of  locks  used  by  the  Department,  in  protect- 
ing the  mails,  the  brass  padlocks  seen  on  letter  and  package  boxes, 
the  iron  lock  used  on  mail  pouches,  the  inside  letter  box  lock,  and 
the  registered  lock  used  to  protect  the  more  valuable  mail.  The 
locks  and  keys  are  made  by  the  Government  in  the  equipment 
shops  at  Washington.  Of  the  iron  lock  there  are  something  like  a 
million  in  use.  These  locks  are  made  at  a  cost  of  8}^  cents  each 
and  weigh  but  2^/5  ounces,  the  lightest  and  best  lock  ever  used  for 
the  purpose.  Locks  previously  in  use  cost  a  great  deal  more 
to  make  and  keep  in  repair  and  were  much  heavier.  The  study 
of  economy  in  various  forms  during  the  past  four  years  has  made 
it  possible  to  introduce  many  reforms  in  the  manufacture  of 
locks  of  which  the  above  is  a  significant  example.  Steel  is  now 
largely  used  in  all  lock  equipment  on  account  of  the  high  cost  of 
brass.  All  equipment  used  in  mail  transportation  is  made  by  the 
Government. 

Mail  locks  and  keys  were  formerly  made  by  contract,  but  during 
the  administration  of  Postmaster  General  Dickinson  it  was 
decided  to  do  this  work  under  Government  supervision.  Public 
policy,  no  less  than  economy  dictated  this  course.  While  the 
manufacture  of  Government  locks  was  surrounded  with  all  pos- 
sible safeguard  and  precaution  there  could  be  no  absolute  assurance 
that  the  mechanism  would  be  kept  secret,  would  be  safe  from  imi- 
tation, so  the  Government,  both  for  security  to  the  mails  and  for 
economic  reasons,  decided  to  have  the  work  done  under  its  own 
direction. 

Mail  Pouches  and  Sacks 

In  the  general  scheme  of  mail  bags  used  in  the  postal  service  the 
term  "pouch"  is  used  to  apply  to  all  mail  bags  designed  for  lock- 
ing by  means  of  mail  locks,  and  the  term  "sack"  is  used  to  apply 
to  all  mail  bags  used  in  the  postal  service  which  are  designed 
for  closing  but  not  locking. 

Under  the  term  "pouch"  may  be  mentioned  those  bags  used 


40  The  American  Postal  Service 

for  inclosing  through  registered  mail,  saddle  bags,  designed  for 
transportation  of  mail  on  horseback;  inner  registered  bags,  used 
for  holding  registered  matter  and  inclosed  in  another  receptacle; 
and  the  ordinary  pouches  for  first  class  mail  matter  such  as  letters, 
etc. ;  also  the  mail  catcher  pouch,  the  use  of  which  is  restricted  to 
the  exchange  of  mails  with  moving  trains. 

Under  the  term  "sacks,"  which  are  designed  for  closing,  as  a 
rule,  but  not  locking,  comes  the  ordinary  sack  for  newspapers  and 
parcel  post  matter,  and  bearing  a  cord  fastener  which  bears  a  label 
case  and  also  serves  for  closure  purposes.  The  standard  bag  is 
made  of  No.  8  canvas,  of  best  quality,  and  withstands  usage  for 
several  years.  The  sacks  used  for  foreign  mails,  ordinary  and 
registered,  are  not  provided  with  a  closure  device  but  are  tied 
with  a  string  and  secured  with  a  lead  seal,  but  it  is  expected  in  the 
near  future  these  classes  of  bags  will  be  equipped  with  a  locking 
contrivance. 

During  the  last  ten  years  the  weight  of  pouches  used  for  ordinary 
service  has  been  rapidly  diminishing.  The  average  weight  of 
pouches  in  1907,  largest  size,  was  about  9  pounds  5  ounces  each, 
while  those  now  being  introduced  into  the  service  weigh  2]/^ 
pounds  each.  This  reduction  in  weight  being  due  largely  to  the 
elimination  of  leather  parts.  Many  old-style  pouches  are  still 
in  use,  viz.,  made  of  a  heavy  canvas  body,  leather  bottom  and  a 
light  weight  top;  costing  about  $2.16  each;  the  "1908"  pouch 
made  of  a  heavy  canvas  bottom  with  leather  band  and  a  lighter 
weight  canvas  top  and  body,  costing  about  $1.44  each.  These 
pouches  are  now  being  rapidly  replaced  with  the  all-canvas  pouch 
costing  less  than  70  cents  each.  Catcher  pouch  used  in  the 
exchange  of  mails  on  moving  trains  costs  80  cents  each.  Wherever 
possible,  the  Department  has  eliminated  expensive  leather  and 
other  parts  in  the  production  of  its  equipment. 

There  are  approximately  600,000  pouches  and  4,000,000  sacks 
available  to  the  service  at  present.  The  all-canvas  pouch  which 
the  Department  now  furnishes  costs  between  69  and  70  cents,  while 
the  largest  size  domestic  standard  sack  cost  a  little  less  than 
73  cents,  smaller  sizes  in  proportion.  Pouches  and  sacks  are 
purchased  by  contract  but  kept  in  repair  by  the  Government. 
New  pouches  of  new  types  are  also  manufactured  by  the  Gov- 
ernment, nearly  80,000  being  made  in  the  Mail  Bag  Repair  Shop 
during  the  past  year. 


The  American  Postal  Service  41 

The  principal  movement  of  mails  is  from  the  east  to  the  west, 
from  the  great  commercial  centers  to  the  less  densely  populated 
districts.  This  ebb  and  flow  is  natural  in  ordinary  times,  but  is 
greatly  increased  both  in  volume  and  quantity  when  the  immensely 
stimulated  holiday  trade  changes  conditions  in  all  directions  and 
calls  for  the  exercise  of  administrative  ability  in  meeting  ex- 
traordinary demands  and  supplying  suddenly  developed  needs. 
These  conditions  are  met  by  a  system  of  distribution  devised 
to  meet  just  such  needs,  whereby  congestion  is  relieved  at  one 
point  and  pressing  demands  accommodated  at  another,  the  various 
mail  bag  depositories  under  capable  management  rendering  such 
necessary  aid.  The  whole  supply  of  bags  has  been  handled  as 
much  as  ten  times  in  one  year  through  these  depositories  without 
which  the  peculiar  conditions  of  the  service  could  not  be  met. 
Mountain  carriers  in  the  northwest  require  special  pouches  espe- 
cially in  the  sections  where  snow  shoes  are  needed.  The  carriers  in 
Alaska  with  their  dog-teams  have  also  special  makes  of  pouches 
and  thus  all  conditions  are  met  where  peculiar  needs  require  it. 

Post  Office  Supplies 

In  June,  1872,  Congress  authorized  the  establishment  of  a  blank 
agency  for  the  purpose  of  supplying  the  smaller  post  oflSces  with 
blanks  and  stationery.  The  appropriation  was  $132,500.  In 
1883  the  scope  of  this  enactment  was  enlarged  and  the  Depart- 
ment undertook  the  tremendous  task  of  supplying  all  the  post 
oflBces  of  the  country  with  stationery  and  all  the  office  equipment 
and  appliances  needed  in  the  conduct  of  public  business.  The 
amount  of  a  recent  appropriation  for  the  purpose  was  about  two 
and  a  half  million  dollars.  From  this  blank  agency  has  grown 
the  Division  of  Supplies,  which  furnishes  all  supplies  needed  except 
mail  bags,  locks  and  keys,  which  come  under  the  equipment 
branch,  of  which  this  division  is  a  part.  Supplies  are  sent  to 
postmasters  upon  requisitions  made  out  upon  blank  forms  fur- 
nished for  the  purpose.  These  requisitions  are  carefully  revised 
by  clerks  and  allowances  made  conformably  to  practice  and 
customs.  Money  order  and  postal  note  requisitions  are  also 
handled  in  this  division.  Supplies  are  required  in  enormous  quanti- 
ties for  public  use.  In  twine  alone  the  required  amount  for  1916 
was  2,000,000  pounds,  or  680,000  miles  of  it.  Ink  15,000  gallons. 
Facing  slips  more  than  a  billion;  pencils,  pens,  blanks,  envelopes 


42  The  American  Postal  Service 

and  paper  in  staggering  amounts.  The  utmost  economy  is  prac- 
ticed in  sending  out  these  immense  supplies  that  waste  may  be 
prevented  and  the  money  appropriated  used  to  the  best  advantage. 
The  capable  management  of  the  Superintendent  and  those  in 
charge  of  the  Division  of  Equipment  and  Supplies,  has  produced 
gratifying  results  in  all  directions  and  rendered  service  which  has 
been  recognized  and  appreciated. 

Special  Delivery 

Special  delivery  was  authorized  by  Act  of  March  3,  1885,  during 
the  administration  of  Postmaster  General  Vilas.  Established 
October  1, 1885.  At  first  restricted  to  free  delivery  oJBSces  in  towns 
of  4,000  or  more  inhabitants.  August  4,  1886,  it  was  extended  to 
all  free  delivery  offices.  Special  delivery  service  is  made  to  all 
persons  within  the  carrier  limits  of  city  delivery  and  to  patrons  of 
rural  service  who  reside  more  than  1  mile  from  post  offices,  but 
within  half  a  mile  of  rural  routes.  Deliveries  are  made  at  all  first 
and  second  class  post  offices  on  Sundays  and  at  other  offices  if 
open  on  Sunday,  and  at  all  offices  on  holidays.  Auditor's  report 
shows  that  for  the  quarter  ending  September,  1916,  the  amount 
expended  for  this  service  was  $633,713.21.  The  number  of  pieces 
delivered  was  nearly  8,000,000,  or  a  yearly  average  of  some- 
thing like  32,000,000. 

Foreign  Mail  Service 

The  foreign  mail  service  of  the  United  States  dates  back  to 
1868,  when  James  H.  Blackfan  was  chief  clerk  of  the  Department. 
This  service  was  then  in  charge  of  the  chief  clerk  and  when  the 
office  of  Superintendent  of  Foreign  Mails  was  created  he  was 
placed  in  charge  of  it.  These  mails  are  carried  under  the  Act  of 
1891.  All  mails  not  carried  by  the  mileage  basis  under  this  act 
are  carried  by  non-contract  vessels  on  the  weight  basis.  The 
total  cost  of  this  service  in  1916  was  $2,228,341.  The  rate  of 
compensation  allowed  under  the  general  statute  for  the  sea  con- 
veyance of  United  States  mails  by  steamers  of  American  register, 
not  operated  under  the  ocean  mail  Act  of  1891,  is  not  exceeding 
the  full  postage  of  the  mails  conveyed.  The  two  principal  offices 
from  which  foreign  mail  is  dispatched  are  New  York  and  San 
Francisco.  Clerks  are  assigned  to  this  service  as  need  requires. 
Under  the  regulations  of  the  Universal  Postal  Convention,  mail 


The  American  Postal  Service  48 

matter  other  than  parcel  post,  may  be  dispatched  whether  fully 
prepaid  or  not,  but  as  double  the  amount  of  postage  is  collectable 
when  not  fully  prepaid,  postmasters  in  this  country  have  been 
instructed  whenever  practicable  to  notify  senders  of  short-paid 
letters  that  such  double  expense  might  be  avoided.  On  registered 
articles  and  parcel  post  packages,  full  prepayment  is  compulsory. 
Rate  of  postage  is  5  cents  for  the  first  ounce  or  fraction  of  an 
ounce,  and  3  cents  for  each  additional  ounce  or  fraction  thereof. 
Letter  postage  for  England,  Ireland,  Scotland,  Wales  and  British 
possessions  goes  at  2  cents  an  ounce.  International  parcel  post 
rate  is  12  cents  per  pound  or  fraction  of  a  pound. 

Topography  Branch 

The  impetus  given  to  this  branch  of  the  service,  the  making  of 
maps,  by  the  rapid  growth  of  rural  delivery,  the  reorganization  of 
which  made  the  completion  of  county  maps  an  almost  immediate 
necessity,  has  considerably  stimulated  activity  in  this  direction 
and  been  productive  of  great  benefit  generally.  Recompilations 
of  State  maps  have  been  made,  old  drawings  brought  up  to  date 
and  diagram  maps  replaced  by  those  of  the  regular  edition.  The 
making  of  maps  has  developed  into  quite  an  industry  in  recent 
years  owing  to  the  greatly  increased  need  for  such  matter.  Few 
people  realize  how  necessary  such  aid  is  in  determining  questions 
of  administrative  concern,  especially  in  such  vast  areas  of  public 
enterprise  as  the  growth  and  extension  of  the  rural  delivery  and 
star  route  service  involves. 

These  public  maps  are  very  largely  used  for  post  routes  and  alto- 
gether this  branch  occupies  quite  an  important  place  in  Depart- 
ment operations.  Of  the  post-route  class  43,258  were  printed  dur- 
ing the  year  of  1916,  1,545  were  sold  to  the  public,  together  with 
5,983  county  and  1,963  local  center  maps  (blueprints)  the  balance 
having  been  distributed  to  the  postal  service,  to  other  Depart- 
ments and  to  Members  of  Congress.  In  the  blue-printing  plant 
7,964  county  maps,  13,330  local  center  maps,  and  10,347  mis- 
cellaneous plans,  forms,  etc.,  were  made. 

Of  the  3,010  counties  in  the  United  States  there  are  2,630  in 
which  rural  delivery  service  is  in  operation.  Accurate  maps, 
showing  rural  service  in  984  of  these  counties,  have  been  com- 
pleted, while  preliminary  maps  for  755  others,  giving  similar  in- 
formation, have  been  drawn.     Base  maps  and  other  data  are  in 


44  The  American  Postal  Service 

hand  which  will  be  used  in  the  compilation  of  maps  of  432  addi- 
tional counties.  Active  steps  are  being  taken  to  procure  informa- 
tion from  every  possible  source  for  use  in  compiling  maps  of  the 
459  remaining  counties. 

These  maps  of  every  county  in  the  United  States  in  which 
rural  service  has  been  established,  are  made  on  a  scale  of  1  inch  to 
the  mile.  They  show  all  public  roads,  rural  routes,  post  offices, 
houses,  school-houses,  churches  and  streams.  Negative  prints 
are  sold  at  35  cents  each  by  application  to  the  Third  Assistant 
Postmaster  General.  Lists  are  furnished  on  request  showing 
maps  completed. 

Division  of  Post  Office  Service 

On  the  first  of  July,  1916,  a  new  division  was  created  in  the 
office  of  the  First  Assistant  Postmaster  General  to  be  known  as  the 
Division  of  Post  Office  Service.  This  new  division  absorbs  tlvl 
duties  formerly  performed  by  the  City  Delivery  and  the  Division 
of  Salaries  and  Allowances.  All  persons  employed  directly  in  post 
offices  as  well  as  the  city  carriers  will  now  come  under  the  control 
of  this  division.  It  will  also  include  every  function  relating  to  the 
handling  and  the  moving  of  the  mails  in  the  cities  and  towns  of  the 
country.  More  efficiency  and  better  results  generally  are  conHl 
fidently  expected  to  follow  this  change  which  is  in  line  with  the 
general  policy  of  placing  all  closely  related  duties  under  the  sam^ 
jurisdiction  and  control. 


CHAPTER  IV 

Special  Articles  on  Postal  Subjects 

The  American  Postal  System 

The  genius  of  the  American  Postal  System  is  found  in  the  har- 
monious cooperation  of  its  several  parts,  in  direction  and  in 
operation;  wise  poHcy  and  purpose  as  seen  in  the  formulation  of 
plans,  with  willing  assistance  in  operation  to  render  such  plans 
effective.  The  Postmaster  General  directs  the  policy,  the  bureau 
heads  execute  what  is  determined  upon  and  the  benefit  or  failure  is 
seen  in  practical  administration.  All  alike  share  in  achievement, 
the  mind  that  conceives,  the  heads  that  direct,  and  the  force  upon 
whose  faithful  and  intelligent  effort  the  outcome  depends. 

A  form  of  Government  democratic  in  all  its  parts  and  tendencies 
requires  fidelity  and  patriotic  purpose  in  performance  from  every- 
one to  whom  any  trust  is  committed,  and  in  every  successful 
accomplishment  of  any  given  plan  or  purpose,  the  measure  of  suc- 
cess is  always  in  proportion  to  the  interest  taken  or  the  industry 
with  which  such  plan  or  purpose  is  pursued.  Loyalty  alike  to 
administrative  endeavor  or  the  public  welfare  is  imperatively 
required  and  unless  this  is  faithfully  and  ungrudgingly  given  no 
plan  can  succeed,  even  the  best  devised  must  surely  fail.  There 
is  such  a  thing  as  patriotic  devotion  to  public  duty  and  no  man 
is  fit  to  hold  an  office  of  trust  no  matter  now  small  it  may  be 
ho  does  not  consider  this  as  an  obligation  to  be  met  and  honestly 
ischarged.  If  any  one  thing  has  contributed  to  make  our  postal 
establishment  prosperous  and  great  it  is  the  conscious  acceptance 
of  the  full  meaning  of  such  an  obligation.  This  has  distinguished 
Americans  in  all  public  employment,  emphasizing  the  stirring 
words  of  Lord  Nelson,  England's  great  naval  commander,  whose 
injunction  to  patriotic  response  upon  a  memorable  occasion 
deserves  to  be  remembered  in  civil  life  as  well,  for  loyalty  and 
patriotism  are  as  much  in  accord  there,  as  much  demanded  in 
ordinary  civil  functions  as  in  the  more  heroic,  but  not  less  honorable 
^^and  useful  pursuit  common  to  our  national  life. 

^B  Considerate  Treatment  of  Newspaper  Mail 

^B  When  General  Gresham  was  Postmaster  General  in  President 
^■Irthur's  administration,  the  Washington  correspondent  of  the 
^Kjouisville  Courier-Journal  complained  to  him  about  the    non- 

I 


46  The  American  Postal  Service 

delivery  of  newspapers  mailed  by  private  individuals.  "What  do 
you  think  is  the  reason?"  asked  General  Gresham.  "I  attribute 
the  failure,"  said  the  correspondent,  "to  the  carelessness  of  post 
office  officials.  A  newspaper  in  their  mind  is  a  very  small  thing 
and  it  is  handled  accordingly.  If  the  address  is  the  least  unintelli- 
gible no  effort  is  made  to  decipher  it  and  it  is  tossed  on  the  floor 
and  if  the  wrapper  happens  to  be  torn  it  shares  the  same  fate,  and 
I  believe  that  newspapers  are  often  torn  open  and  read  without 
any  conscientious  scruples  whatever." 

"I  am  glad  you  told  me  about  the  alleged  carelessness  that  exists 
in  post  offices  in  the  country,"  said  General  Gresham.  "I  shall 
give  the  matter  prompt  attention.  If  I  cannot  work  out  a  reform 
in  that  respect,  I  would  remove  a  postmaster  for  breaking  the 
wrapper  of  a  newspaper  or  making  away  with  it  as  quick  as  I 
would  if  he  had  torn  open  a  letter.     One  is  as  sacred  as  the  other." 

Bureau  of  Engraving  and  Printing 
Stamp  Manufacture 

The  Bureau  of  Engraving  and  Printing  in  which  all  the  postage 
stamps  used  by  the  Government  are  manufactured  is  a  wonder- 
ful institution  every  way.  Every  known  appliance  and  all  that 
the  mechanical  skill  and  ingenuity  of  the  Director,  Hon.  Joseph 
E.  Ralph,  and  his  very  capable  expert  and  designer,  Mr.  B.  R. 
Stickney,  could  devise,  have  been  brought  into  requisition  for 
the  purposes  the  Bureau  is  intended  to  serve. 

The  various  operations  required  in  printing  postage  stamps 
alone,  of  which  such  enormous  quantities  are  annually  required, 
would  seem  a  great  undertaking,  but  when  to  this  is  added  the 
printing  of  all  the  paper  money,  bonds  and  securities  used  by  the 
Government,  the  magnitude  of  the  task  may  be  understood. 
Between  four  and  five  thousand  people  find  employment  within 
the  Bureau,  the  greatest  establishment  of  its  kind  in  the  world. 
Thousands  of  visitors  annually  witness  the  wonders  therein  dis- 
played and  come  away  impressed  with  the  marvels  they  have 
seen  in  the  adaption  of  means  to  a  definite  purpose.  The  care 
and  comfort  of  the  employes  is  a  matter  of  deep  concern  to  the 
Director  and  every  possible  method  of  providing  for  both,  by 
approved  means  of  sanitation  and  ventilation,  is  availed  of.  The 
air  is  washed  and  strained  to  cleanse  it  of  all  impurities  and  full 
hospital  provision  made  for  those  who  may  need  medical  care  and 
attention.    Nothing  seems  to  have  been  forgotten  or  overlooked  in 


The  American  Postal  Service  47 

this  most  wonderful  of  all  government  establishments  and  the 
result  is  that  under  favorable  working  conditions  the  utmost  that 
may  be  expected  is  fully  realized. 

The  ordinary  postage  stamps  are  in  denominations  of  from  1 
cent  to  $1  and  of  nineteen  kinds.  The  output  is  40,000,000  daily, 
or  something  like  thirteen  billions  per  annum,  with  a  face  value  in 
1915  of  $221,875,000.  They  are  printed  in  sheets  of  400  each, 
which  are  divided  and  subdivided  until  the  sheet  contains  100 
stamps  in  which  amount  they  are  sent  to  the  post  oflSces  for  public 
use.  The  various  processes  used  in  manufacture,  the  printing, 
gumming  and  perforating,  are  separately  performed  on  the  sheets 
of  stamps;  those  intended  for  slot  machines  are  printed  and  per- 
fected on  a  rotary  press  which  performs  all  the  operations  at  once. 
This  press,  the  invention  of  Mr.  Stickney,  after  seven  years  of 
labor,  will  save  65  per  cent  of  the  cost  of  printing  stamps  per 
annum  or  $280,000,  and  will  completely  revolutionize  stamp  print- 
ing from  intaglio  plates.  It  combines  twenty-three  operations  in 
one.  It  prints,  gums  and  perforates  the  stamps,  cuts  them 
into  sections  of  100  stamps  each,  or  will  finish  the  stamps  in  coils 
of  500  and  1,000  stamps  per  coil.  It  turns  out  the  finished  product 
ready  for  shipment  to  the  postmasters  of  the  country.  As  an 
object  lesson  to  further  show  the  tremendous  proportions  of  this 
postage  stamp  industry,  it  may  be  stated  that  the  daily  output 
would  cover  approximately  eight  acres  of  land  if  laid  flat  or  make 
a  chain  of  stamps  703  miles  long  if  laid  end  to  end.  The  sheets  of 
100  stamps  each  sent  to  post  oflSces  in  1915,  piled  up  one  upon 
another,  would  make  a  shaft  over  6  miles  high,  and  placed  end  to 
end  would  make  a  strip  over  16,000  miles  long  and  as  there  are 
ten  rows  of  stamps  on  each  sheet,  a  strip  of  single  stamps  would  be 
more  than  160,000  miles  long,  enough  to  girdle  the  earth  six  times 
with  something  over. 

The  paper  required  to  print  these  stamps  for  the  year  1915 
amounted  to  1,200,000  pounds,  and  to  make  this  paper  and  to 
obtain  this  amount,  3,500  spruce  trees  were  ground  to  a  pulp. 
Converted  into  lumber  this  would  have  built  fifty  houses  complete. 
The  amount  of  ink  required  was  670,000  pounds. 

When  the  post  oflSce  inspectors,  unannounced,  visited  the  Bureau 
at  the  close  of  the  fiscal  year  of  1915  to  check  up  the  accounts,  they 
were  found  correct  to  the  last  one-cent  stamp,  a  high  compliment 
to  the  excellent  accounting  system  in  practice  at  that  institution. 


48  The  American  Postal  Service 

Orders  for  stamps  are  received  daily  from  the  Office  of  the  Third 
Assistant  Postmaster  General  and  shipped  by  the  Bm-eau. 

Post  Office  Inspectors 

The  Division  of  Post  Office  Inspectors  is  in  many  ways  one  of  the 
most  interesting  in  the  postal  service.  The  duties  are  varied  and 
of  especial  importance,  as  the  Post  Office  Inspector  when  on  duty 
for  the  Department  is  the  official  representative  of  the  Postmaster 
General  and  clothed  with  all  due  official  authority.  The  purpose, 
of  such  officials  is  to  have  ready  at  hand  reliable  men  for  confiden- 
tial work.  Unusual  capacity  is  required,  tact,  judgment,  patience 
and  courage.  The  duties  of  an  inspector  are  not  measured  by  the 
ordinary  hours  of  employment,  but  depend  altogether  upon  the 
nature  of  the  work  he  is  called  upon  to  perform,  day  and  nighl 
in  successive  order,  being  synonymous  terms  when  especial  servi( 
is  required.  Complaints  are  generally  the  basis  of  inquiry  and 
operation,  but  the  scope  of  duties  takes  a  wide  range,  involving] 
special  work  of  any  kind  and  in  any  direction.  Irregularities  in 
the  service  form  the  principal  basis  of  complaints,  but  violations  of 
postal  laws,  frauds  and  depredations  upon  the  mails  furnish  a 
proportionate  share. 

The  inspectors  are  assigned  to  duty  in  geographical  divisions 
of  the  country  under  an  inspector-in-charge,  with  the  Chief 
Inspector  at  Washington  in  general  control.  As  a  rule  inspectors 
do  duty  in  their  divisions,  but  under  the  orders  of  the  Postmaster 
General  they  may  be  sent  anywhere.  They  are  expected  to  be 
familiar  with  the  Postal  Laws  and  Regulations  and  conduct  their 
inquiries  in  accordance  therewith.  The  division  is  directly  under 
the  Postmaster  General  and  in  the  classified  civil  service,  and  the 
selections  made  for  this  important  service  represent  men  of  intelli- 
gence and  integrity.  Volumes  could  be  written  of  the  strategy 
employed  and  methods  pursued  in  tracing  criminal  operations. 
The  more  agreeable  duties,  however,  require  an  equal  amount  of 
skill  though  attended  with  less  danger  and  difficulty.  The  force 
of  inspectors  has  been  largely  increased  in  recent  years  because  of 
postal  growth  and  development  in  all  directions. 

The  Railway  Mail  Service 
The  Railway  Mail  Service  of  the  United  States,  the  mosi 
splendid  of  all  the  branches  of  the  postal  service,  owes  its  origin  t< 
Hon.  S.  R.  Hobbie  of  New  York,  First  Assistant  Postmast( 


The  American  Postal  Service  49 

General  in  the  administration  of  President  Jackson.  Upon  his 
return  from  Europe  in  1847,  he  made  a  report  to  the  Department 
giving  his  impression  of  the  traveling  post  ojQSce  in  England.  The 
Department  was  then  struggling  with  many  difficulties  in  the  dis- 
tribution and  bagging  of  the  mails  and  one  plan  after  another 
was  tried  with  but  indifferent  success.  Finally  Judge  Holt, 
Postmaster  General  in  1862,  determined  to  try  the  English  system 
and  the  first  railway  post  office  was  introduced  in  the  postal 
service  of  the  country.  The  overland  mails  were  then  carried 
by  stage  coaches  from  the  west  side  of  the  Missouri  River  to  Cali- 
fornia and  the  immense  accumulation  of  mail  matter  at  Saint 
Joseph,  Mo.,  destined  for  the  Pacific  Coast  and  the  intermediate 
States,  induced  the  Postmaster  General  to  establish  the  first 
railway  post  office  on  the  Hannibal  and  St.  Joseph  Railroad 
(Quincy,  111.,  to  St.  Joseph,  Mo),  the  pioneer  road  in  Railway  Mail 
Service  history.  The  growth  of  the  Railway  Mail  Service  has 
been  marvelous  and  its  achievements  unequalled  in  modern 
progressive  developement.  Three  thousand  five  hundred  railroad 
mail  routes,  aggregating  502,937,359  miles  of  service  and  employ- 
ing nearly  19,000  postal  clerks  and  supervisors  with  salaries 
amounting  to  over  $26,000,000  attest  the  strength  and  greatness 
of  this  magnificent  arm  of  the  postal  service.  Of  the  14,369,582,- 
586  pieces  of  mail  matter  distributed  and  re-distributed  during  the 
past  year,  14,367,325,426  pieces,  or  99.984  per  cent,  were  handled 
correctly — a  record  which  should  be  a  matter  of  pride  to  every 
man  who  wears  the  badge  of  the  R.  M.  S.  The  fifteen  divisions 
in  which  the  whole  service  is  divided  each  complete  in  itself,  but 
responsive  to  central  control  and  direction  in  Washington,  has 
brought  the  system  to  such  a  state  of  perfection  that  but  little 
remains  for  further  experiment. 

The  Parcel  Post  and  the  Opposition  to  Its  Establishment 

The  splendid  showing  made  in  the  recent  reports  of  the  Post- 
master General  touching  the  growth  and  development  of  the 
Parcel  Post  in  this  administration  must  be  of  interest  to  the  people 
of  the  country  for  whose  benefit  this  measure  has  been  so  suc- 
cessfully conducted.  Its  admitted  usefulness  brings  forcibly  to 
mind  the  struggle  through  which  this  measure  passed  before  the 
force  of  public  opinion  and  the  evident  advantage  it  foreshadowed, 
secured  its  ultimate  adoption. 


50  The  American  Postal  Service 

While  in  the  American  RepubUc  history  is  rapidly  made  and 
startling  changes  are  not  of  infrequent  or  uncommon  occurrence, 
it  is,  however,  true  that  subjects  which  provoke  discussion  because 
cherished  interests  are  endangered  or  settled  opinions  of  public 
policy  liable  to  be  overthrown,  require  time  in  which  to  adjust 
themselves  to  changing  conditions. 

The  student  of  political  economy  will  be  interested  to  note  how 
these  changes  of  time  and  condition  affect  the  opinion  and  views 
of  men  identified  with  public  affairs.  What  seems  wisdom  and 
good  judgment  in  one  generation  is  opposed  and  set  aside  in 
another,  both  acting  for  the  general  welfare  and  inspired  by  patri- 
otic purpose. 

The  proper  scope  and  purpose  of  government,  in  its  relation  to 
the  people  whom  it  serves,  is  always  a  matter  of  deep  concern, 
not  only  as  to  the  views  held  by  those  appointed  to  administer 
public  affairs,  but  also  in  the  opinions  and  ideas  of  the  people 
themselves.  While  a  great  principle  may  remain  in  many  minds 
the  same,  unchanged  and  reluctant  to  change,  conditions  may 
operate  to  produce  views  entirely  dissimilar  and  completely  at 
variance  with  those  of  another  and  previous  period. 

Two  greatly  divergent  and  distinctive  opinions  have  divided  the 
thinkers  and  the  statesmen  of  our  country  as  to  the  proper  func- 
tions of  such  a  government  as  this.  This  difference  arising  from 
the  educational  environment  of  many  leaders  of  public  opinion, 
easily  became  a  matter  of  accepted  political  or  party  belief  between 
those  who  held  to  the  limitations  of  delegated  authority  and  those 
who  inclined  to  wider  power  and  greater  privilege.  Both  have 
had  earnest  and  strenuous  advocates,  but  the  tendencies  of  the 
times  conclusively  point  to  the  growing  acceptance  of  the  latter 
as  more  suited  to  a  great  and  growing  nation  whose  needs  may  not 
be  fettered  by  tradition  or  obstinate  blindness  to  the  march  of 
progress,  but  must  recognize  the  paramount  interests  of  the 
people  whose  welfare  should  always  be  the  chief  concern. 

The  Parcel  Post  is  now  a  recognized  benefit  to  the  country.  All 
classes  and  conditions  profit  by  its  mutual  advantage.  Its 
gigantic  strides  to  popular  favor  cannot  be  measured  or  ade- 
quately described.  The  burdensome  exactions  of  the  high  tariffs, 
which  corporate  enterprise  so  long  interposed,  have  been  lifted 
and  closer  relation  established  between  buyer  and  seller,  by 
which  both  are  the  gainer.     As  no  compromise  was  possible  where 


The  American  Postal  Service  51 

monopoly  was  concerned,  it  remained  for  the  Government  to  set 
aside  the  question  of  limited  powers  and  give  the  people  of  the 
country  the  benefit  to  which  they  were  entitled,  but  which  monop- 
oly denied,  viz.,  the  opportunity  to  profit  by  the  use  of  the  facili- 
ties which  were  at  hand  and  which  have  proven  so  thoroughly 
effective.  Two  names  stand  out  prominently  in  this  connection, 
the  statesman  whose  thorough  knowledge  of  the  subject  and  whose 
earnest  and  intelligent  efforts  shaped  and  directed  this  great  pub- 
lic measure,  and  the  public  official  whose  hearty  cooperation  as- 
sured its  success.  Hon.  David  J.  Lewis,  of  Maryland,  and  Hon. 
Albert  S.  Burleson,  the  Postmaster  General,  deserve  the  thanks  of 
the  country  for  their  work  in  this  beneficial  enterprise  and  the 
meed  of  praise  will  not  be  withheld. 

The  old-time  belief  in  the  necessity  of  curbing  the  ambitious 
designs  of  those  who  were  striving  to  open  the  way  to  an  enlarge- 
ment of  government  privilege  is  strikingly  seen  in  the  attitude  of 
Postmaster  General  Jewell  in  his  annual  report  to  Congress  in 
1874.  In  referring  to  the  activity  then  already  seen  to  widen  the 
scope  of  the  Post  Office  Department  and  engage  in  enterprises 
held  by  many  at  that  time  and  the  Postmaster  General  in  par- 
ticular, as  foreign  to  the  sphere  of  duties  and  intended  purposes 
and  powers  of  the  Department,  Mr.  Jewell  said: 

**  I  would  suggest  that  the  time  has  come  when  a  resolute  effort 
should  be  made  to  determine  how  far  the  Post  Office  Department 
can  properly  go  in  its  efforts  to  accommodate  the  public,  without 
trespassing  unwarrantably  upon  the  sphere  of  private  enterprise. 
There  must  be  a  limit  to  governmental  interferency  and  happily 
it  better  suits  the  genius  of  the  American  people  to  help  themselves 
than  to  depend  on  the  State.  To  communicate  intelligence  and 
disseminate  information  are  the  primary  functions  of  this  Depart- 
ment. Any  divergence  from  the  legitimate  sphere  of  its  opera- 
tions tends  to  disturb  the  just  rule  that,  in  the  ordinary  business 
of  life,  the  recipient  of  a  benefit  is  the  proper  party  to  pay  for  it, 
since  there  is  no  escape  from  the  universal  law  that  every  service 
must  in  some  way  be  paid  for  by  some  one.  Moreover,  in  a 
country  of  vast  extent  like  ours,  where  most  of  the  operations  of 
the  Department  are  carried  on  remote  from  the  controlling  center, 
the  disposition  to  engage  in  lateral  enterprises,  more  or  less  foreign 
to  the  theory  of  the  system,  may  lead  to  embarrassments  whence 
extrication  would  be  difficult." 

Although  the  advocates  of  the  privileged  rights  of  private  enter- 
prise have  ever  resisted  the  entrance  of  government  into  the  field 


52  The  American  Postal  Service 

of  national  endeavor,  the  triumphant  progress  of  the  Parcel  Post 
under  Departmental  direction  has  silenced  all  captious  objec- 
tion, for  its  admitted  adaptation  to  the  needs  of  the  country  and  its 
growing  popularity  among  the  people,  attests  the  fact  that  no 
limitations  can  be  wisely  set  in  public  affairs  which  bars  the 
progress  of  an  intended  benefit. 

An  attempt  was  later  made  in  1901  to  check  the  growth  of  pub- 
lic sentiment  favorable  to  the  establishment  of  the  Parcel  Post, 
for  which  a  bill  has  been  introduced  into  Congress,  by  a  con- 
certed movement,  by  whom  originated  is  not  known,  which  aimed 
to  arouse  the  merchants  in  rural  sections  in  opposition  thereto,  a 
widespread  propaganda,  the  object  of  which  was  to  flood  President 
McKinley  with  a  stereotyped  circular  signed  by  these  rural  mer- 
chants all  over  the  country,  in  order  that  such  measure  might  not 
meet  with  his  approval  because  of  the  wreck  and  ruin  it  would  be 
sure  to  create.  To  what  extent  this  movement  was  carried  or 
what  attention  it  received  from  President  McKinley  is  not  known, 
but  the  fears  of  Postmaster  General  Jewell  or  the  alarm  of  the 
rural  merchants  were  not  borne  out  in  the  light  of  subsequent 
events,  as  the  successful  progress  of  the  Parcel  Post  has  abundantly 
demonstrated. 

This  popular  measure  was,  however,  not  to  be  secured  for  the 
public  good  without  strenuous  effort,  even  in  these  later  days 
when  its  early  adoption  was  so  clearly  foreseen.  It  still  had  to 
encounter  opposition,  the  lingering  echo  of  previous  struggle. 
Its  friends  had  to  meet  and  combat  resistance,  w  ithin  and  without 
the  halls  of  legislation  and  it  was  only  by  determined  purpose  and 
a  concert  of  effort  that  criticism  was  finally  silenced  and  the 
measure  written  into  the  statutes  of  the  nation.  Congress 
passed  the  act,  August  24,  1912,  and  the  struggle  of  nearly  half  a 
century  was  at  an  end  with  the  popular  will  triumphant. 

First  recommended  in  1892.  Law  passed  by  Congress  August  2, 
1912.  Became  operative  January  1,  1913.  It  is  in  operation  on 
45,000  rural  routes  and  a  billion  parcels  are  carried  annually. 
Parcels  may  be  sent  C.  O.  D.,  may  be  insured,  3  cents  for  parcels 
valued  up  to  $5  or  less  and  a  low  graduated  scale  up  to  $100. 
Indemnity  is  paid  for  partial  loss  or  damage.  Rate  is  charged 
by  weight  in  pounds  and  by  zones.  Books  are  now  admitted 
and  all  classes  of  proper  merchandise  accepted.  Weight  is 
limited  to  50  pounds  for  first  and  second  zones  (150  miles) 


The  American  Postal  Service  53 

and  to  20  pounds  beyond.    Postmasters  will  give  all  necessary 
information. 

Interesting  Facts  about  the  Postmasters  General 

Excluding  the  border  States,  the  South,  properly  speaking,  has 
had  but  two  men  in  the  office  of  Postmaster  General  since  the  days 
of  Benjamin  Franklin — ^Joseph  Habersham,  of  Georgia,  and  Albert 
Sidney  Burleson,  of  Texas.  The  more  populous  States  of  the  east, 
with  their  political  power  and  material  advantages,  have  had 
the  greatest  number  of  such  appointments,  23  of  the  48  men 
who  have  held  that  office  having  come  from  that  section.  The 
border  States  have  had  15  and  the  west  only  8.  It  was  not  until 
1866  that  the  west  was  at  all  recognized  in  the  appointment  of 
such  cabinet  officer,  when  Alexander  W.  Randall,  of  Wisconsin, 
was  chosen  by  President  Johnson.  Subsequently  that  State  fur- 
nished three  more  Postmasters  General,  viz., Howe, Vilas  and  Payne. 
In  1829  the  Postmaster  General  became  a  member  of  the  cabinet  by 
the  action  of  President  Jackson,  his  first  appointee  to  that  posi- 
tion, Hon.  William  T.  Barry,  of  Kentucky,  receiving  that  honor. 

In  considering  the  States  of  the  Union  which  have  been  most 
fortunate  in  appointments  to  this  office,  it  is  found  that  Pennsyl- 
vania and  New  York  have  each  had  6  to  their  credit;  Connecti- 
cut, Kentucky,  Tennessee,  and  Wisconsin,  4  each;  Massachusetts, 
Maryland,  and  Ohio,  3  each,  and  the  remainder  scattered 
among  the  18  States  from  which  all  the  Postmasters  General 
have  been  selected. 

The  term  of  service  was,  it  seems,  much  longer  in  the  olden 
days  than  at  present.  From  1775  to  1850 — 75  years — ^there  were 
only  17  men  in  that  position,  Gideon  Granger,  of  Connecticut, 
having  served  13  years  and  8  months,  and  Return  J.  Meigs,  of 
Ohio,  9  years  and  3  months.  From  1850  to  1913 — 63  years — there 
have  been  31  men  in  that  office.  Whether  the  shifting  currents  of 
political  life  and  expediency,  or  other  causes,  have  operated  to 
make  changes  in  this  office,  it  appears  that  many  occurred  in 
the  administrations  of  some  of  our  chief  executives.  Roosevelt, 
for  instance,  had  four  Postmasters  General;  Grant,  Arthur,  and 
Cleveland  (in  the  latter 's  two  terms)  also  had  4  each;  Washing- 
ton and  Buchanan,  3;  Jackson,  Fillmore,  Lincoln,  Hayes,  and 
McKinley,  2  each.  The  remainder  of  the  Presidents  evidently 
retained  the  men  they  had  originally  appointed. 


54  The  American  Postal  Service 

Withdrawal  of  Letters  from  the  Mail 

It  may  not  be  generally  known  that  a  letter  once  mailed  can  be 
withdrawn.  Such  is,  however,  the  case.  Letters  may  be  with- 
drawn from  the  mails  at  the  office  of  mailing  by  satisfactory  identi- 
fication, a  written  address  in  the  same  handwriting,  if  address 
was  written,  or  such  other  evidence  as  will  satisfy  the  postmaster 
of  the  applicant's  right  to  withdrawal.  If  letter  has  already  been 
dispatched  the  postmaster  may  telegraph  to  the  point  of  destina- 
tion for  withholding  such  letter  from  delivery,  or  to  a  railway 
postal  clerk  in  whose  custody  the  letter  is  known  to  be,  carefully 
describing  the  same  and  requesting  its  return.  A  sum  must  be 
deposited  with  the  postmaster  sufficient  to  defray  all  expenses 
incurred. 

Handling  of  the  Mail 

Official  mail  comes  to  the  Department  addressed  to  the  several 
Bureaus.  It  is  then  opened,  assorted  to  the  various  divisions  and 
redistributed  to  the  clerks  according  to  the  subjects  named  or 
special  duties  assigned  to  each.  The  divisions  are  supervised 
by  the  official  in  charge,  under  whose  direction  the  work  is  done 
and  by  whom  the  responsibility  is  assumed.  He  advises  with 
and  suggests  methods  of  operation,  and  in  important  matters  in- 
volving special  correspondence,  assumes  direct  charge  himself. 
Letters  written  by  clerks  are  submitted  to  the  chief  for  examina- 
tion before  being  initialed  for  mailing,  or  for  the  signature  of  the 
Bureau  heads  where  such  signature  is  required.  Letters  are 
answered  according  to  date  of  receipt  all  reasonable  promptness 
being  enjoined.  Filing  is  done  according  to  the  nature  and  duties 
of  the  various  bureaus  and  the  character  of  correspondence  and 
papers  in  use.  Approved  systems  are  followed  and  metal  filing 
cases  generally  employed.  In  the  Bureau  of  the  Fourth  Assistant 
where  monthly  reports  are  received  in  connection  with  the  regular 
mail,  during  the  month  of  January,  1917,  the  amount  so  received 
aggregated  72,000  pieces,  and  46,000  pieces  of  mail  were  dispatched. 
Ordinary  hand  work  could  not  dispose  of  such  amounts  with  the 
force  assigned,  therefore  mechanical  devices  for  opening  and  sealing 
mail  are  employed  for  the  purpose.  Messengers  gather  the 
outgoing  mail  by  regular  rounds  and  it  is  dispatched  as  soon  as 
brought  to  the  mailing  room.  A  work  of  considerable  magnitude 
in  this  Bureau  is  now  being  conducted,  viz.,  the  purging  of  the  ac- 
cumulated rural  and  star  route  files  and  correspondence  which 


The  American  Postal  Service  55 

had  so  grown  in  bulk  as  to  make  both  search  and  handling  difficult. 
It  was  a  much  needed  reform  and  will  be  found  of  especial  value  in 
filing  operations. 

Cost  Accounting 

By  means  of  an  accurate  cost-keeping  system  devised  for  the 
equipment  shops,  but  which  can  be  adapted  to  any  form  of  clerical 
expense,  great  improvements  have  been  made  and  savings  effected. 
All  mail  equipment  is  now  supplied  at  a  greatly  reduced  cost  and 
in  improved  form.  Supplies  for  post  offices  are  judiciously  and 
economically  handled  under  the  system  now  in  operation,  all  dis- 
coverable waste  checked  and  the  service  greatly  benefited.  The 
direct,  the  indirect  and  the  overhead  charges  can  now  be  clearly 
ascertained  in  any  form  of  manufacturing  enterprise  and  the 
cost  in  any  direction  definitely  known.  It  was  a  long  felt  need  in 
economical  administration  and  its  introduction  in  the  Post  Office 
Department  has  been  of  decided  advantage. 

Cleansing  Mail  Bags 

The  life  of  a  mail  bag  is  about  six  years  and  after  being  dragged 
about  on  railroad  platforms  and  other  places  they  accumulate  an 
amount  of  dust  and  dirt  which  renders  them  unfit  for  handling 
when  returned  to  the  bag  shop  for  repair.  The  old  practice  was 
to  shake  them  out  by  hand,  but  in  the  hurry  and  haste  of  business 
this  was  but  imperfectly  done  and  there  was  constant  complaint 
among  the  operators  and  clamor  for  a  better  system.  After 
many  experiments  and  various  tests  a  method  was  at  length 
devised  which  cleans  them  thoroughly  and  does  away  with  the  dis- 
comfort under  which  the  work  was  done.  The  method  finally 
adopted  consists  of  large  tumbling  barrels  or  cages  made  of  wood 
with  slats  and  fashioned  in  the  shape  of  a  star,  holding  several 
hundred  bags  each.  Driven  rapidly  by  electric  power  the  bags 
are  thoroughly  shaken,  the  escaping  dust  confined  in  a  tightly 
constructed  room  and  carried  off  by  blowers  into  an  immense  can- 
vas bag  resembling  a  dirigible  balloon  when  inflated.  At  stated 
intervals  the  end  of  this  bag  is  opened  and  the  dirt  and  dust 
removed.  Four  thousand  bags  a  day  are  now  successfully  treated 
by  this  process. 

The  Farm-to-Table  Movement 

As  the  farm-to-table  movement  is  now  attracting  a  great  deal  of 
public  attention  and  is  directly  connected  with  the  postal  service 


56  The  American  Postal  Service 

by  its  afforded  means  of  communication,  some  observations  upon 
the  subject  may  be  worthy  of  mention. 

There  are  four  fundamental  facts  connected  with  the  subject, 
viz.,  the  points  of  production,  places  of  consumption,  methods  of 
operation  and  means  of  communication.  Production  is  upon  the 
farm,  consumption  in  the  cities  and  towns,  methods,  to  be  deter- 
mined by  experience,  and  the  mode  and  means  of  conveyance,  a 
government  function. 

Regarding  the  first  of  these  divisions,  certain  facts  are  apparent. 
The  balance  of  trade,  eight  to  one  is  against  the  farmer  at  the 
point  of  production;  he  receives  very  much  more  than  he  sends. 
Why  this  disproportion?  It  is  caused  either  by  lack  of  interest 
in  the  subject,  or  because  of  lack  of  practical  experience  in  the 
successful  management  of  such  business  enterprise.  The  remedy 
in  either  case  is  in  his  hands.  If  interest  is  wanting  he  should  culti- 
vate it;  if  he  has  made  experiments  and  they  have  failed  of  proper 
results,  he  should  not  become  discouraged  but  try  again.  High 
prices  in  the  cities  lead  the  residents  there  to  seek  relief  by  direct 
dealings  with  the  producer.  The  consumer  will  reach  him  if  he 
puts  himself  in  touch  with  the  man  who  is  seeking,  and  the  desire  to 
sell  his  goods  and  do  business,  should  lead  the  producer  to  inquire 
how  best  it  can  be  done  The  postmaster  can  help  him  by  advice 
and  counsel  and  it  should  be  a  pleasurable  duty  for  the  post- 
master to  advise  and  confer  with,  and  put  the  producer  (who  is  his 
patron),  in  the  way  of  profitable  business  intercourse  with  the  man 
in  the  city  who  needs  him  and  is  only  too  anxious  to  find  who  he  is, 
where  he  lives,  and  what  he  has  to  sell. 

While  the  country  postmaster  at  the  point  of  production  has  a 
duty  to  perform  in  advising  with  the  producer  (for  the  post- 
master is  to  all  intents  and  purposes  the  "middleman"  in  this  con- 
nection) the  city  postmaster  has  also  a  duty  to  perform  in  assisting 
the  resident  there  to  find  the  most  convenient  places  of  produc- 
tion and  how  such  places  can  be  easily  reached  and  what  can  be 
procured  there  that  the  city  resident  wants  and  needs.  Many 
postmasters  are  now  paying  especial  attention  to  this  matter  on 
account  of  the  urgent  necessity  which  the  high  prices,  and  dimin- 
ished quantities  of  provision  that  come  to  the  cities,  render  so 
necessary,  but  conditions  require  that  many  more  should  be 
engaged  in  that  direction  to  afford  all  the  benefit  this  great  measure 
of  the  Government  was  intended  to  give. 


The  American  Postal  Service  57 

The  methods,  the  best  methods  to  obtain  the  end  desired,  both 
at  the  point  of  production,  where  the  supply  is  found,  and  at  the 
point  of  consumption  to  which  this  supply  is  to  be  transported, 
must  be  discovered  by  the  actual  results  which  the  various  methods 
that  have  been  tried  have  produced,  or  were  found  to  be  most 
advantageous  and  most  successful.  Many  plans  have  been 
suggested  and  tried  out,  but  it  must  remain  for  experience  to 
demonstrate  and  determine  which  of  these  is  best  and  most 
likely  to  secure  advantageous  benefits. 

The  remaining  question  is  the  part  the  Government  is  called  upon 
to  perform  to  reap  the  most  possible  results  and  make  the  farm- 
to- table  movement  popular  and  profitable.  The  Government 
is  more  ready  to  act  than  either  producer  or  consumer  seem  to  be; 
to  extend  every  privilege  and  afford  every  accommodation  which 
postal  enterprise  or  the  public  purse  can  provide,  that  this,  in 
some  sense  paternal  relation  of  government  to  people  in  benevolent 
provision  for  their  welfare,  may  secure  all  that  its  most  sanguine 
projectors  ever  hoped  to  accomplish.  It  has  the  support  of  Con- 
gress, and  the  Postmaster  General  has  omitted  no  word  or  act 
which  could  in  any  manner  contribute  to  its  success  and  stands 
ready  to  do  the  utmost  that  his  great  office  and  his  great  opportu- 
nity afford,  to  make  this  measure  a  benefit  and  a  boon  to  all  the 
people. 

The  readjustment  of  prices  will  come,  and  the  remedy  appear, 
when  the  elimination  of  so  much  handling,  packing,  repacking  and 
distributing  with  its  consequent  loss  and  its  increased  cost,  de- 
creases the  cost  which  the  consumer  has  to  meet  for  all  this  added 
labor,  and  for  which  he  pays  the  price,  and  from  which  burden 
the  parcel  post  by  its  direct  and  better  system  of  exchange  aims 
to  free  and  relieve  him. 

Postal  Service  in  Alaska 

Alaska  is  so  far  off  that  its  interests  do  not  commonly  concern  the 
people  to  any  great  extent.  The  Government,  however,  takes  a 
more  paternal  view  of  its  only  territorial  possession  in  North 
America,  and  has  paid  particular  attention  to  its  progress  and 
development,  especially  in  postal  affairs  and  the  means  of  com- 
munication among  the  people.  Alaska  has  now  170  post  offices 
of  which  45  have  money  order  facilities.  It  has  21  star  routes 
with  an  aggregate  length  of  4,544  miles  and  an  annual  travel  of 


58  The  American  Postal  Service 

249,33 1.10  miles.  Annual  rate  of  expenditure,  $260,518.50.  Aver- 
age rate  of  cost  per  mile  traveled,  $1.04.  Average  number  of 
trips  per  week,  52. 

Standardization  in  Post  OffiiCe  Methods 

During  this  administration  a  very  important  change  was  made 
in  the  management  and  conduct  of  the  larger  post  offices  of  the 
country.  It  was  found  that  the  delivery  of  parcel  post  matter  by 
vehicle  was  costing  from  1  to  6  cents  each.  Investigation  showed 
that  this  varying  cost  was  largely  due  to  lack  of  uniformity  in 
methods  and  equipment  and  that  the  need  of  standardization 
extended  to  every  branch  of  post  office  service.  Postal  experts 
were  accordingly  sent  to  all  sections  of  the  country  to  study 
existing  methods  and  recommend  necessary  changes.  As  a  result, 
unnecessary  independent  divisions  in  post  offices  were  eliminated 
and  two  divisions  established,  one  in  charge  of  records,  accounts 
and  financial  services,  the  other  to  have  charge  of  the  mail  handling 
operations.  The  personnel  of  the  offices  also  received  attention, 
that  as  far  as  possible,  clerks  could  be  assigned  to  the  duties 
for  which  they  were  best  fitted.  Subsequent  investigation  con- 
firmed the  advantage  of  such  standardization,  and  the  large  post 
offices  which  handle  75  per  cent  of  the  nation's  mail,  have  now 
been  brought  under  such  improved  control  that  the  benefit  which 
such  intelligent  methods,  properly  carried  out,  should  naturally 
develop,  has  been  abundantly  shown. 

Postal  Savings  Circulars  in  Foreign  Tongues 

The  Government  has  for  years  been  anxious  to  reach  citizens  of 
foreign  birth  residing  in  the  United  States  for  the  purpose  of  in- 
forming them  relative  to  our  Postal  Savings  System.  Circulars 
have  now  been  issued  in  the  mother  tongue  to  Bohemian,  Bul- 
garian, Chinese,  Croatian,  Danish,  Norwegian,  Finnish,  French, 
German,  Greek,  Hungarian,  Magyar,  Italian,  Japanese,  Lithu- 
anian, Polish,  Portuguese,  Russian,  Ruthenian,  Serbian,  Slovak, 
Sloverian,  Spanish,  Swedish,  and  Yiddish  people  here  which 
have  been  widely  distributed  and  are  expected  to  be  of  con- 
siderable service.  The  foreign  born  population  in  this  country, 
according  to  the  census  of  1910,  numbers  over  13,000,000  and  it  is 
believed  that  the  business  of  the  Postal  Savings  System  would 
be  greatly  increased  if  the  attention  of  these  people  could  be 


The  American  Postal  Service  50 

properly  directed  to  its  advantages,  and  these  circulars  in  their 
own  language  are  intended  for  that  purpose. 

Postal  Enterprise  of  a  Patriotic  Maryland  Editor 

It  seems  from  old  records  on  the  subject  as  mentioned  in  the 
Washington  Evening  Star,  that  some  of  the  editors  of  the  colonial 
period  of  our  history  had  quite  a  good  deal  to  say  and  took  a  very 
active  part  in  shaping  political  events,  particularly  in  postal 
affairs.  One  Maryland  editor,  Goddard  by  name,  when  his  papers 
were  refused  in  the  mails  on  account  of  his  outspoken  views,  set 
about  establishing  what  he  called  "A  Constitutional  American 
Post  Office."  He  issued  a  circular,  July  2,  1774,  announcing  his 
plan,  and  went  about  the  colonies  soliciting  support.  Committees 
were  appointed  and  subscriptions  of  money  secured,  postmasters 
designated,  riders  secured  and  service  established,  which  was 
instantly  patronized.  Crown  post  riders  found  the  roads  unsafe 
and  resigned.  Goddard  was  printer  of  the  Maryland  Journal, 
printed  at  Baltimore,  and  by  the  early  part  of  1775  he  had  thirty 
offices  and  nine  post  riders,  covering  the  territory  from  Massa- 
chusetts to  Virginia,  including  Georgetown-on-the-Potomac. 

It  was  a  private  service,  operated  in  opposition  to  the  still 
existing  British  service.  Goddard  had  declared  his  desire  to  have 
the  Continental  Congress  assume  charge  and  administer  this 
service  for  all  the  peple. 

The  Continental  Congress  took  up  the  matter  and  appointed  a 
committee  composed  of  Mr.  Franklin,  Mr.  Lynch,  Mr.  Lee,  Mr. 
Willing,  Mr.  Adams,  and  Mr.  P.  Livingston,  who  brought  in  their 
report  July  25,  1775. 

The  report  was  taken  up  and  considered  the  next  day,  July  26, 
1775,  when  it  was  resolved,  that  a  Postmaster  General  be  appointed 
for  the  United  Colonies.  The  record  of  the  Continental  Congress 
on  that  day  (postal  independence  day),  then  closes  with  the 
unanimous  election  of  Benjamin  Franklin  to  be  Postmaster 
General. 

Damage  in  Handling  Parcel  Post  Mail 

A  study  of  4,219  reports  received  at  the  headquarters  of  the 
various  Railway  Mail  Service  Divisions  during  a  thirty-day  inves- 
tigation, held  recently  to  discover  the  amount  of  damage  in  hand- 
ling parcel  post  mail  and  the  causes  of  such  damage,  it  was  found 
that  in  52.31  per  cent  of  the  cases  damage  was  caused  by  improper 


do  The  American  Postal  Service 

preparation  of  the  parcels  by  senders.    The  result  of  this  investiga- 
tion may  be  summarized  as  follows : 

Cases  of  damage  caused  by  improper  prepara- 
tion of  sender 2,207 

Cases  of  damage  caused  by  improper  handling 
by  postmaster 107 

Cases  of  damage  caused  by  improper  handling 
by  Railway  Mail  Service  employes 43 

Cases  of  damage  caused  by  improper  handling 
by  railroad  employes 54 

Cases  of  damage  from  miscellaneous  causes.. .     188 

Cases  of  damage  from  unknown  causes 1,620 

Total 4,219 

Cases  of  damage  to — 

Eggs 355  8.41 

Butter 99  2.35 

Hats 119  2.82 

Paint 20  .47 

Powders 59  1.40 

Preserves 129  3.06 

Liquids 925  21.92 

Foodstuffs 575  13.63 

Merchandise 1,002  23.75 

China  and  glass 368  8.72 

Liquids 925  21.92 

Fruit 194  4.60 

Poultry 51  1.21 

Flowers 53  1..26 

Other  articles 270  6.40 

4,219         100.00 

Damage  cases  insured 137  3 .  25 

Damage  cases  on  star  routes 304  7. 21 

An  Opinion  by  Daniel  Webster  on  Mail  Extension 

In  this  period  of  unprecedented  postal  growth  and  activity  when 
history  is  rapidly  made  and  great  achievements  are  born  in  a  day, 
it  is  interesting  to  recall  that  in  1835,  during  the  discussion  of  a 
measure  in  the  United  States  Senate  to  establish  a  post  route  from 
Independence,  Mo.,  to  the  mouth  of  the  Colorado  River,  the 
learned  Daniel  Webster  closed  his  speech  in  opposition  with  the 
following  language: 


The  American  Postal  Service  61 

"What  do  we  want  with  this  vast  worthless  area;  this  region 
of  savages  and  wild  beasts,  of  deserts,  shifting  sands,  and  whirl- 
winds of  dust;  of  cactus  and  prairie  dogs?  To  what  use  can  we 
hope  to  put  these  great  deserts  or  those  endless  mountain  ranges, 
imposing  and  covered  to  their  very  base  with  eternal  snow?  What 
use  have  we  for  such  country?  Mr.  President,  I  will  never  vote 
1  cent  from  the  Public  Treasury  to  place  the  Pacific  Coast  1  inch 
nearer  to  Boston  than  it  now  is." 

"I  can  safely  venture,"  said  Hon.  D.  C.  Roper,  late  First  Assist- 
ant Postmaster  General  in  his  speech  at  the  Denver,  Colo.,  Con- 
vention of  the  National  Association  of  Postmasters,  in  July,  1913, 
from  which  this  extract  is  made,  "that  were  Mr.  Webster  to  return 
to  earth  and  accompany  me  on  this  western  trip  he  would  confess 
in  chagrin  that  in  no  expression  made  during  his  long  career  as  a 
public  speaker  was  he  wider  of  the  mark." 

A  Blind  Woman  on  the  Pay  Roll 

It  is  wonderful  how  the  blind,  those  who  have  been  denied  by 
nature  or  accident  of  the  most  priceless  of  all  human  faculties, 
can  adapt  themselves  to  conditions  whereby  the  means  of  sup- 
port may  be  obtained.  All  communities  and  great  centers  of 
population  have  doubtless  such  cases,  especially  where  opportuni- 
ties are  afforded  by  private  munificence  or  public  appropriation, 
but  there  are  perhaps  few  cases  where,  in  Government  service,  it  is 
possible  for  a  blind  person  to  find  an  opportunity  to  earn  a  living. 
The  Mail  Bag  Repair  Shop  at  Washington  furnishes  such  a  case 
and  it  is  worthy  of  notice. 

Twenty-six  years  ago  a  blind  girl.  Miss  Hattie  Maddox,  called 
to  see  Postmaster  General  Wanamaker  and  asked  for  a  place  in  the 
bag  shop.  She  said,  "You  give  seeing  people  a  two  months*  trial 
at  the  work,  will  you  give  me  that  much  time  to  prove  that  I  can 
do  it?"  She  then  went  to  Colonel  Whitfield,  Second  Assistant 
Postmaster  General,  who  had  charge  of  such  work,  and  showed 
him  some  crocheting  she  had  done  and  the  opportunity  she  sought 
was  given  her.  She  is  there  today  busy  with  a  pile  of  mail  bags, 
stringing  them  with  new  cords,  finding  weak  spots  and  repairing 
them  with  needle  and  thread  and  does  the  work  as  well  as  any  of 
those  around  her.  An  attendant  from  her  home  brings  her  to  her 
daily  task  and  calls  for  her,  and  she  is  one  of  the  most  contented 
and  happy  women  on  Uncle  Sam's  pay  roll. 


62  The  American  Postal  Service 

Mr.  Wanamaker's  Four  Great  Postal  Reforms 

Marshall  Gushing,  private  secretary  to  Postmaster  General 
Wanamaker,  says  in  his  book  "The  Story  of  Our  Post  Office," 
published  some  years  ago,  that  Mr.  Wanamaker  had  in  mind  and 
frequently  discussed  with  public  men,  four  great  postal  proposi- 
tions, one  of  which  this  administration  is  now  vigorously  pushing 
forward,  while  the  other  three  are  still  in  abeyance.  These  propo- 
sitions were  the  postal  telegraph,  the  postal  telephone,  rural 
free  delivery  and  house-to-house  collections  of  mail.  He  regarded 
them  as  simple  and  easy  business  propositions. 

The  first  proposed  that  the  thousands  of  letter  carriers  of  the 
Department  should  help  the  telegraph  companies  collect  and  de- 
liver messages,  and  that  a  few  clerks  in  a  central  bureau  at  Wash- 
ington could  manage  the  stamp  department  and  do  the  book- 
keeping for  this  part  of  the  business  of  the  companies.  Tele- 
grams were  to  be  written  on  stamped  paper,  sold  by  the  Depart- 
ment, or  upon  any  sort  of  paper  provided  with  stamps  sold  by  the 
Department,  and  be  deposited  as  in  the  case  of  letters  whether  on 
the  streets  or  attached  for  collection  and  delivery  purposes  at 
house  doors.  These  postal  telegrams  were  to  be  collected  by 
carriers  on  their  regular  tours  of  collection  and  telegraphed  to  the 
destinations  and  taken  out  and  delivered  in  the  first  delivery. 
Answer  to  be  sent  off  exactly  in  the  same  way. 

Telegraphic  business  was  thus  to  be  cheapened  to  the  public  be- 
cause of  the  lessened  cost  to  the  companies  by  this  Government  aid, 
commonly  estimated  at  about  one  third  of  their  whole  operating 
expenses.  The  gain  to  the  Government  would  be  not  only  the  2 
cents  for  postage  rates  proposed  for  telegrams  under  this  scheme 
but  also  the  impetus  given  by  general  correspondence.  The  gain 
to  the  companies  would  be  the  additional  patronage  which  lower 
rates  and  regular  collection  and  delivery  would  give,  also  the 
saving  of  this  expense  and  the  office  use,  clerk  hire,  etc.,  and 
other  expenses  incidental  thereto.  This  scheme  was  in  no  wise  to 
interfere  with  the  use  of  the  quicker  form  of  telegraphing  for  those 
who  preferred  it.  It  was  simply  intended  to  bring  together  in 
concerted  action  the  two  great  machines  for  conveying  intelli- 
gence, the  telegraph  plant  of  the  companies  and  the  free  delivery 
operating  forces  of  the  Department.  This,  in  brief,  was  his  idea, 
but  much   more   extensively   elaborated   in   further   supporting 


The  American  Postal  Service  63 

arguments  in  its  favor  and  in  meeting  objections  where  doubts 
of  its  practicability  might  be  supposed  to  exist. 

This  proposition  has  been  widely  mentioned,  has  had  many 
advocates,  and  it  is  interesting  to  note  in  this  connection  that 
Postmaster  General  Burleson  entertains  a  somewhat  similar 
idea,  and  has  in  three  annual  reports  to  Congress  urged  the  mat- 
ter, however,  with  this  difference.  Wanamaker's  plan  did  not 
contemplate  taking  over  the  telegraph  companies,  simply  entering 
into  a  mutual  business  arrangement  with  them,  while  Postmaster 
General  Burleson  goes  a  step  farther  by  the  incorporation  of  the 
telephone  and  telegraph  into  the  postal  establishment.  The 
opposition  to  the  postal  telegraph  was  as  strong  then  as  now,  its 
constitutionality  being  questioned  by  those  who  oppose  it.  Mr. 
Wanamaker  held  that  the  powers  granted  to  Congress  by  the 
Constitution  were  not  merely  confined  to  the  facilities  known  at 
the  time,  but  were  to  keep  pace  with  the  progress  of  the  country, 
and  Mr.  Burleson  says,  operation  of  these  facilities  inherently  as 
well  as  constitutionally,  belongs  to  the  postal  service.  Both  are 
thus  in  accord,  differing  only  in  method.  The  question  is  one  of 
interest  and  its  future  development  will  be  watched  with  consider- 
able concern  by  all  who  wish  to  see  further  progress  in  this  direction. 

As  the  second  of  Mr.  Wanamaker's  propositions,  the  postal 
telephone,  with  its  tremendous  opportunities  and  possibilities, 
especially  in  connection  with  rural  delivery  and  parcel  post 
advantages,  the  magnitude  and  success  of  which  even  the  enthusi- 
astic and  optimistic  Pennsylvanian  did  not  then  foresee,  is  bound 
up  in  General  Burleson's  plan,  and  the  third,  the  rural  free  delivery, 
is  making  such  strides  towards  country-wide  extension  that  it  is 
only  a  matter  of  time  when  it  may  be  brought  near,  the  fourth 
of  Mr.  Wanamaker's  propositions  remains  only  to  be  mentioned. 

This  is  the  use  of  letter  boxes  for  the  collection  as  well  as  the 
delivery  of  mail  from  and  to  everybody's  door  in  every  city,  town, 
village  and  farming  community  of  the  country.  This  means 
such  an  immense  convenience  to  everybody  that  he  does  not  argue 
the  case,  but  simply  points  out  its  admitted  advantages  as  a  suffi- 
cient reason  for  its  early  adoption.  A  disk  at  the  door-box  when 
mail  was  to  be  collected  would  summon  the  carrier  on  his  daily 
rounds,  even  if  no  mail  was  to  be  delivered;  trips  to  the  letter 
box  on  the  corner  would  then  be  no  longer  necessary,  and  the  ease 
and  certainty  with  which  collection  would  be  made,  would  in  Mr. 


64  The  American  Postal  Service 

Wanamaker's  opinion,  give  an  impulse  to  letter  writing  and  increase 
the  public  revenue  to  a  very  considerable  extent.  It  would  mean 
two  great  conveniences  to  the  family,  the  safe  delivery  of  letters 
at  their  door  and  the  equally  safe  collection  of  mail  therefrom. 
Of  course  to  obtain  this  service,  letter  boxes  would  have  to  be 
provided  by  the  householders,  but  Mr.  Wanamaker  believed 
that  this  complete  accommodation  would  induce  people  to  go  to 
that  trifling  expense  in  order  to  gain  such  an  evident  advantage. 
It  was  tried  in  St.  Louis  in  his  time,  and  worked  exceedingly  well. 
Postmaster  General  Wanamaker  was  an  official  with  a  far-seeing 
vision  and  actively  alive  to  all  postal  possibilities,  and  the  present 
Postmaster  General  is  fully  abreast  of  him  in  every  form  of  public 
enterprise  which  makes  for  the  utmost  in  postal  accomplishment 
(See  page  83,  for  Postmaster  General  Burleson's  views  regarding 
Postal  Telegraphs  and  Telephones. 

^  The  Rural  Carrier  as  a  Weather  Man 

It  is  said  that  the  most  common  topic  among  mankind  every- 
where is  the  weather.  It  follows  nearly  every  greeting  and  salu- 
tation, introduces  conversation,  is  always  a  subject  of  interest  and 
affords  opportunities  of  discussion'  upon  which  people  can  agree 
and  disagree  without  exciting  the  least  disturbance  whatever. 

It  has  so  much  to  do  with  the  temper,  the  disposition  the 
pleasures  and  the  material  affairs  of  life  that  its  compelling  interest 
is  admitted  and  the  winds  and  clouds  are  ever  objects  of  our  daily 
attention.  The  Government  recognizes  this  fact  and  has  brought 
scientific  knowledge  to  bear  upon  the  subject  for  the  benefit  of  the 
man  who  tills  the  soil,  for  the  mariner  upon  the  sea  and  they  who 
dwell  in  the  cities,  and  for  whom  wind  and  weather  has  also  its 
peculiar  interest  and  concern. 

Weather  maps  are  common  in  the  crowded  cities  and  commer- 
cial centers,  but  are  not  as  convenient  of  access  in  the  country 
districts,  and  aside  from  the  reports  in  the  morning  papers,  the 
farmer  has  no  particular  way  of  acquainting  himself  with  the 
provision  the  Government  has  made  in  this  respect. 

It  has  been  suggested  that  an  easy  and  simple  way  of  inter- 
esting and  informing  the  rural  residents  of  the  daily  weather 
forecasts  would  be  for  the  carriers  on  rural  routes  who  can 
obtain  this  information  to  make  it  known  by  means  of  little 
flags  attached  to  their  vehicles,  for  example,  a  white  flag  when 


The  American  Postal  Service  65 

the  weather  will  be  clear,  a  red  flag  when  rain  is  indicated,  a  yellow 
flag  for  snow  and  a  blue  flag  when  a  cold  wave  is  coming.  This 
would  be  a  daily  guide,  a  matter  of  but  little  trouble  to  the  carrier, 
and  give  his  daily  visits  an  additional  interest  to  all  the  patrons 
whom  he  serves. 

New  Box  Numbering  System  for  Rural  Routes 

In  the  cities  of  the  country  the  streets  are  named  and  the 
houses  are  numbered  by  the  authorities.  The  Department  uses 
these  numbers  and  street  names  in  its  mail  deliveries.  A  letter 
to  be  properly  addressed  to  a  person  or  a  firm  needs  only  the  num- 
ber of  the  house  or  building  and  the  name  of  the  street.  This 
method  is  very  simple  and  the  mail  is  speedily  and  successfully 
handled. 

In  the  country  districts  there  are  four  systems  in  use  by  the 
Department,  the  railroads,  and  the  express  companies.  The 
first  system  is  where  patrons  erect  boxes  at  their  places  of  residence 
for  the  collection  and  delivery  of  mail.  The  letter  or  parcel 
is  simply  addressed  to  the  post  oflSce,  to  the  patron  and  the  rural 
route  is  given.  The  second  is  where  a  letter  or  parcel  is  addressed 
to  the  patron  at  a  post  office,  with  the  number  of  the  route,  the  box 
number,  the  side  of  the  road,  and  the  miles  from  the  office  being 
embodied  in  the  box  number.  The  third  is  where  a  letter  or 
parcel  is  addressed  to  a  patron  at  a  post  office  giving  the  route 
number  and  the  number  of  the  patron's  box.  The  fourth  system 
is  where  mail  is  addressed  to  the  patron  at  an  office  giving  the  sec- 
tion and  township  where  the  patron  lives.  This  latter  system 
is  used  by  the  railroads  relative  to  freight  and  express  matter  and 
definitely  locates  a  person  in  any  part  of  the  United  States.  The 
addition  of  the  rural  route  number  and  box  makes  the  most 
complete  designation  possible. 

There  has  been  an  ingenious  plan  suggested  (if  it  can  be  practi- 
cally employed),  a  newer  and  more  complete  method  of  numbering 
the  boxes  along  rural  delivery  routes  indicating  and  locating  the  pa- 
trons thereon  which  will  identify  the  patron  with  his  place  of  resi- 
dence, simplify  assorting,  and  afford  in  many  ways  advantages 
not  offered  or  included  in  the  old  method. 


ae 


2 

10.  n 

8.  a 

6.  n 

The  American  Postal  Service 
The  Present  Method 


o 
o 

a; 
m 


u 

11. 

n 

12 

D 

.9 

2 

D 

.7 

n 

.5 

4.  n 

1 

2.  n 

<t) 

g 

^^ 

n  .3         1 

m 

u 

fe 

n  .1 

D  Post  Office 

The  Suggested  New  Method 

The  diagram  on  the  following  page,  which  is  intended  to  illustrate 
the  suggested  new  plan,  shows  that  in  any  given  three  numbers, 
such  as  111,  the  first  figure  at  the  left  would  be  the  route  num- 
ber, the  second  figure  the  number  of  the  box,  the  third  the  dis- 
tance from  the  supplying  office. 

Explanation:  The  first  figure  as  indicated  denotes  the  rural  route 
number,  the  second  figure  denotes  the  box  and  its  location  on  the 
mile,  the  third  or  more  figures  denotes  the  miles  from  the  supply- 
ing post  office.  Each  mile  is  divided  into  four  quarters  for  box 
designation,  those  on  the  right  have  the  odd  figures  1,  3,  5,  7, 
and  those  on  the  left  even  figures  2,  4,  6,  and  8.  If  there  is  more 
than  one  box  in  a  quarter,  the  other  boxes  are  given  the  first  box 
number  in  that  quarter  with  the  addition  of  a  small  letter  a,  h,  c,  d, 
etc.,  after  the  mile  figure  or  figures.    The  patron  if  he  lived  at  the 


The  American  Postal  Service 


67 


first  quarter  of  a  mile  would  be  addressed — John  Williams,  Ray- 
ville,  111.,  Rural  Delivery  111.  This  would  show  that  John 
Williams  lives  on  rural  route  number  one,  at  the  first  quarter  mile 
on  the  delivery  part  of  the  route,  and  that  it  is  the  first  box  on  the 
first  mile.  If  he  lived  on  the  second  mile  at  the  third  quarter  he 
would  be  addressed  Rural  Delivery  152,  and  his  box  would  be  so 
numbered.  If  he  lived  on  the  second  mile  at  the  second  quarter, 
and  on  the  left-hand  side  of  the  road,  his  box  number  would  be 
142.  Where  automobile  routes  are  established  a  capital  letter  can 
be  used  instead  of  the  first  figure.  If  it  is  desired,  the  section 
number  can  be  used  instead  of  the  miles  figure  or  figures,  and  would 
then  show  where  the  patron  lived  in  the  township. 


182  . 

Section 

162  . 

5 

142  . 

122  . 

181  . 

Section 

161  . 

8 

141  . 

121  . 

n3 

o 
o 

m 


CO 


.  172 

.  152 

Section 

.  132a 

4 

.  132 

.  112 

.  171 

.  151 

Section 

.  131 

9 

.  Ill 

1             1 

P  Post  Office 

Starting  point. 

It  is  understood  that  the  Department  has  under  consideration 
the  question  of  locating  the  boxes  on  the  right-hand  side  of  the 
road  for  the  convenience  of  the  carrier.  The  above  system 
can  be  used  whether  all  the  boxes  are  located  on  the  right  side  of 
the  road  or  not.    The  question  of  entirely  abandoning  the  prac- 


68  The  American  Postal  Service 

tice  of  numbering  boxes  is  also  being  considered  and  if  adopted, 
this  suggested  method  of  additional  identification  would  of  course 
be  useless.  It  is  simply  mentioned  here  as  an  idea  to  aid  in  readily 
assorting  mail  in  the  office  and  as  a  more  complete  method  of 
identification  than  under  the  present  system.  If  the  Depart- 
ment decides  that  the  name  of  the  owner  on  the  box  is  sufficient, 
this  suggested  new  plan  has  no  further  value  and  can  be  regarded 
as  one  of  the  many  novel  ideas  in  connection  with  the  rural  service 
which  come  up  from  time  to  time. 

It  may,  however,  be  said  that  a  box  once  located  and  numbered 
always  retains  its  identity  and  no  matter  how  many  persons  live 
at,  or  move  to  or  from  that  locality,  the  box  number  retains  its 
identity  the  same  as  a  house  retains  its  identity  in  a  city. 

Wireless  Telephones  in  the  Rural  Service 

From  that  memorable  day  in  June,  1875,  when  Alexander 
Graham  Bell  discovered  a  faint  sound  emanating  from  the  curious 
little  machine  over  which  three  years  of  patient  labor  had  been 
spent,  until  today,  when  the  world  is  debtor  to  this  great  man  for 
one  of  the  marvels  of  the  age,  the  telephone  has  been  a  constant 
wonder  and  especially  so  at  this  time,  when  its  adaptability  for  the 
common  uses  of  life  has  made  it  of  value  wherever  civilization 
extends.  Mr.  Bell  was  a  professor  at  Boston  University  and  his 
honors  came  to  him  at  an  early  age,  for  he  was  but  twenty-nine 
when  the  patent  that  was  to  make  him  famous  was  granted  by  the 
Government. 

He  exhibited  his  invention  at  the  Philadelphia  Centennial 
Exposition  with  but  indifferent  success;  no  attention  was  paid  him 
until  Dom  Pedro,  Emperor  of  Brazil,  a  visitor  at  the  fair,  who  knew 
the  young  inventor,  placed  the  receiver  to  his  ear  while  Professor 
Bell,  in  an  adjoining  room,  spoke  into  it  and,  listening  to  it  a 
moment,  looked  up  with  the  exclamation,  "My  God,  it  talks!" 
Recognition  by  the  judges  was  then  hurriedly  given  and  future 
success  assured. 

The  fortieth  anniversary  of  the  award  of  this  patent  was  fittingly 
celebrated  at  the  annual  dinner  of  the  National  Geographic  Society 
in  Willards  Hotel,  Washington,  D.  C,  March  7,  1916.  The  ac- 
coimt  of  what  occurred  there,  the  splendid  tributes  paid  to  Pro- 
fessor Bell  by  the  distinguished  men  present,  appears  in  the  March 
number  of  the  National  Geographic  Magazine,  1916,  and  presents  a 


The  American  Postal  Service  60 

story  of  achievement  of  which  every  American  can  be  justly 
proud,  but  is  not  a  matter  of  pride  to  American  genius  alone,  but 
shared  alike  wherever  men  do  homage  to  intellectual  worth  and 
greatness. 

But  what  of  the  future?  Can  the  telephone  be  brought  to  still 
other  uses  than  already  known?  Can  it  be  made  adaptable  for 
field  use,  for  rural  purposes  in  the  country  districts  of  the  United 
States?  The  Electrical  Experimenter,  for  April,  1917,  discusses 
a  practical  possibility  in  this  direction,  not  for  civil  pursuits  but 
for  military  needs.  It  mentions  a  wireless  telephone  set,  mounted 
on  a  motorcycle  for  army  purposes  by  means  of  radiophonic 
communication  in  connection  with  a  military  aeroplane.  This 
is  of  course  intended  for  military  purposes  only,  but  shows  the 
great  possibilities  involved  and  advantages  that  may  follow  fuller 
investigation  of  wireless  methods.  All  questions  of  wireless  de- 
velopment for  military  needs,  however,  may  now  be  safely  left 
in  the  hands  of  those  directly  concerned.  Perhaps  the  greatest 
interest  centers  at  present  in  its  possibilities  in  the  field  of  the 
rural  delivery  service  where  its  successful  introduction  would  work 
a  most  tremendous  change.  If,  for  instance,  it  could  be  used  by  a 
rural  carrier,  what  a  field  of  opportunity  it  would  open  in  connec- 
tion with  such  service. 

Is  there  a  possibility  of  such  accomplishments?  It  would  seem 
that  there  is  from  the  investigation  and  discovery  of  a  young 
electrician.  Earl  Hanson,  of  Los  Angeles,  Cal.  He  recently 
demonstrated  to  the  mayor  of  Los  Angeles  and  the  president  of  the 
telephone  company  that  his  apparatus  could  send  music,  talk  of 
any  kind,  whispers  and  signals  without  wires.  His  device  is 
so  light  and  small  and  yet  so  effective  that  when  attached  to  a 
bicycle  used  by  a  policeman,  constant  communication  could  be 
maintained  with  the  laboratory.  One  or  one  thousand  receivers 
can  be  attached,  and  each  hears  as  distinctly  as  if  they  were  in  the 
room  from  which  the  sounds  proceeded.  The  only  explanation  of 
this  marvelous  process  given  is  that  the  inventor  used  very  low 
frequency  wireless  waves  in  a  new  way.  The  great  drawback  to 
wireless  telephony  and  telegraphy  has  always  been  that  the  air  is 
one  great  "line"  and  always  busy.  Hanson's  plan  aims  to  over- 
come this,  to  send  messages  though  the  air  is  split  up  around  him 
by  the  operation  of  other  stations ! 

All  this  is  wonderful  and  may  require  more  demonstration  to 


70  The  American  Postal  Service 

prove  its  adaptability,  but  science  is  at  work  and  it  is  not  improb- 
able that  wireless  telephones  for  rural  use  and  purpose  may  ere 
long  be  successfully  accomplished. 

The  Jasper,  Fla.,  News,  voices  this  prophetic  hope  in  a  well- 
written  article  which  recently  appeared  in  that  paper,  and  we  take 
pleasure  in  presenting  that  portion  herewith  as  a  compliment  to 
editorial  enterprise  and  a  far-seeing  vision  of  coming  events. 

"An  improvement,  which  we  confidently  look  forward  to  as  being 
made  in  the  not  far  distant  future,  will  be  the  establishment  of  a 
wireless  telephone  system  at  every  county  seat  in  connection  with 
the  rural  free  delivery  service. 

"By  means  of  this  wireless  telephone,  the  carrier  would  be 
enabled  to  communicate  with  the  post  office  from  any  point  while 
serving  his  route,  and  the  post  office  could  call  any  carrier  desired 
and  deliver  a  message  which  the  carrier  would  get  without  even 
stopping  his  automobile. 

"The  advantage  of  an  arrangement  of  this  kind  can  be  easily 
seen.  The  farmer  could  meet  the  mail  at  his  number  and  over 
the  wireless,  could  call  a  doctor,  send  a  telegram,  inquire  about  the 
the  market  direct  with  the  buyer,  have  Uncle  Sam  to  run  his 
errands,  and  many  other  things  too  numerous  to  mention. 

"Truly,  we  are  living  in  a  wonderful  age,  but  more  wonderful 
things  are  coming.'* 

Parcel  Post  Exhibits  at  County  Fairs 
One  of  the  methods  by  which  the  Department  is  bringing  the 
advantages  of  the  parcel  post  to  the  attention  of  the  people  of  the 
United  States  is  by  means  of  exhibits  at  State  and  county  fairs 
and  other  civic  expositions.  While  there  is  no  appropriation 
available  for  such  purpose,  postmasters  who  are  interested  in  this 
government  experiment  to  bring  producer  and  consumer  together 
and  so  reduce  the  cost  of  living  expense  have  shown  such  desire 
to  aid  in  this  matter  and  their  efforts  have  been  so  generally  suc- 
cessful in  this  direction  that  space  has  been  freely  given  and  great 
benefits  have  followed  in  all  communities  where  this  plan  has  been 
tried. 

From  reports  at  hand  it  appears  that  ninety-four  of  such 
displays  have  been  held  in  various  States  and  that  thirty  addi- 
tional fairs  were  yet  to  be  held  at  which  such  parcel  post  exhibits 
were  to  be  made  a  special  feature.  By  tens  of  thousands,  both 
city  and  rural  populations  have  been  afforded  an  opportunity  to 
see  working  demonstrations  of  the  farm-to-table  service  and  been 
enabled  to  profit  thereby. 


The  American  Postal  Service  71 

These  exhibits  are  generally  so  instructive  to  the  people,  the 
farmers  so  willing  to  show  by  card  or  samples  of  goods  what  they 
can  furnish,  and  the  postmasters  so  ready  to  cooperate  in  every 
way  to  make  these  postal  exhibits  a  success  by  showing  different 
styles  of  containers,  the  best  method  of  packing,  etc.,  that  no 
opportunity  should  be  lost  where  county  fairs  are  held  to  secure 
space  for  such  exhibits  and  make  the  most  creditable  display  pos- 
sible. The  postmasters  are  the  proper  parties  for  carrying  out  the 
purposes  of  the  Government  in  this  connection  and  the  Depart- 
ment is  anxious  that  such  opportunities  be  availed  of  that  the 
advantages  thus  offered  may  be  utilized  to  their  fullest  extent. 

The  Great  Express  Service  of  the  Government 

The  parcel  post,  the  great  express  service  of  the  Government,  is 
now  used  so  generally  and  for  so  many  purposes  that  the  mention 
of  some  of  the  things  that  are  being  shipped  may  be  of  interest. 
For  instance,  at  the  Lincoln  County  fair  at  Merrill,  Wis.,  some  time 
ago,  there  was  an  exhibit  of  a  take-down  house  all  the  parts  of 
which  had  been  sent  to  Merrill  by  parcel  post.  Indeed  the 
shipment  of  lumber  by  parcel  post  is  not  now  an  uncommon 
thing,  due  attention  being  paid  to  postal  requirements. 

At  Gridley,  Cal.,  a  patron  entered  the  office  with  several  small 
sacks  of  some  heavy  material  and  asked  to  have  them  forwarded. 
The  clerk  after  weighing  them  regarded  the  sacks  with  some 
suspicion  and  upon  inquiry  of  the  shipper  learned  that  the  sacks 
contained  dirt,  soil  from  a  farm,  which  he  was  sending  to  the 
State  University  for  analysis.  Another  patron  appeared  at  the 
office  in  the  morning  with  a  package  of  meat  under  his  arm  and 
posted  the  parcel  to  a  family  in  Marysville,  Cal.,  remarking  at 
the  time  that  Mrs. ordered  this  meat  for  supper! 

An  enterprising  farmer  at  Burke,  Va.,  advises  the  Postmaster 
at  Washington,  D.  C,  that  he  would  kill  a  steer  on  December  1, 
and  would  sell  the  cuts  of  meat  at  one-third  less  than  Washington 
retail  prices.  His  offer  was  advertised  in  a  farm  list  and  in  a  parcel 
post  trade  paper  and  before  the  steer  was  killed  the  meat  had  all 
been  engaged.  The  cuts  were  sent  to  the  customers  in  market 
baskets  and  containers.  The  farmer  was  offered  $35  for  the  steer 
on  the  hoof,  but  realized  $45  by  individual  sales  and  the  hide 
paid  for  help  in  parting  and  dressing  for  market.  Orders  came 
from  Washington,  Baltimore,  and  even  from  Long  Island,  N.  Y, 


73  The  American  Postal  Service 

The  postmaster  of  Denver,  Colo.,  reported  that  on  Thanksgiving 
Day,  1914,  more  than  1,000  perishable  parcels,  80  per  cent  of  which 
contained  turkeys,  were  received  at  the  Denver  oflfice  and  delivered 
in  good  condition. 

The  list  of  possible  shipments  of  every  conceivable  kind  and  char- 
acter could  be  indefinitely  extended,  for  it  is  known  that  the  scope 
of  subjects  that  can  be  handled  by  the  parcel  post  is  practically 
limitless  and  only  awaits  proper  enterprise  for  productive  profit 
to  those  who  will  engage  in  it. 

The  parcel  post  is  without  question  a  great  success.  There  is 
no  other  measure  of  interest  connected  with  the  service  which 
presents  so  many  economic  possibilities.  Its  great  advantage 
over  the  private  carriers  is  apparent  and  the  benefits  quickly  seen 
in  practical  operation.  The  United  States  mail  goes  every- 
where throughout  the  length  and  breadth  of  the  country.  Private 
expresses  are  governed  by  the  avenues  of  profit.  The  Govern- 
ment is  not  concerned  about  profit  but  regards  service  as  of  para- 
mount importance,  hence  it  directs  its  activities  to  all  regions 
alike,  going  where  there  are  no  express  oflBces  or  ever  likely  to  be. 
This  is  the  great  distinguishing  feature  of  the  parcel  post  and  its 
benefits  as  can  be  plainly  seen,  are  chiefly  for  the  rural  sections 
who  would  be  denied  these  advantages  were  there  no  such  service 
in  operation. 

The  whole  effort  of  the  parcel  post  aims  to  furnish  an  exceed- 
ingly reasonable  method  of  interchanging  commodities  between 
the  farm  and  city  home,  something  which  no  private  corporation 
has  ever  attempted  or  would  undertake  to  do,  all  such  enterprises 
being  purely  for  gain  and  profit.  The  farmer  can  now  find  the 
opportunity  he  has  been  seeking.  By  some  little  care  and  atten- 
tion to  the  conditions  that  assure  favorable  results,  such  as  putting 
himself  in  touch  with  his  customers,  properly  packing  and  fur- 
nishing a  good  article  at  a  reasonable  price,  he  can  develop  a 
profitable  market  for  what  he  produces,  reduce  the  cost  of  living 
to  others  while  reaping  an  advantage  for  himself. 

The  Telephone  and  Parcel  Post  in  Cooperation 

Elsewhere  attention  is  called  to  the  future  possibilities  of  the 
wireless  telephone  for  rural  uses,  but  in  the  meanwhile  the  many 
uses  to  which  the  telephone  can  be  put  in  the  common  affairs  of 
life  is  being  industriously  employed  in  all  the  rural  sections  of  the 


The  American  Postal  Service  73 

country.  The  farmers  have  learned  to  make  daily  use  of  this  con- 
venience and  it  is  doubtless  employed  to  almost  as  great  an  extent 
there  as  in  the  cities  and  commercial  centers.  The  farmers  wife 
can  talk  to  the  village  store,  or  the  more  ambitious  establishments 
at  the  county  seat,  or  perhaps  reach  a  neighboring  city  for  her 
wants,  and  Uncle  Sam  is  so  anxious  to  oblige  her  and  has  made  such 
ample  provision  for  the  purpose  that  her  wants  can  receive  instant 
attention  and  be  promptly  supplied,  a  matter  gratifying  alike  to 
the  customer  and  the  merchant  as  well. 

It  was  altogether  different  before  these  conveniences  were  avail- 
able. It  probably  meant  in  those  days  a  visit  to  the  city  or  town, 
or  if  the  need  was  not  pressing  the  friendly  aid  of  neighborly 
interest  and  concerns  in  seeing  her  wants  supplied.  In  the  hurry 
and  rush  of  modern  life  taking  everything  for  granted  and  consider- 
ing nothing  uncommon,  we  are  apt  to  pay  little  heed  to  the  many 
comforts  we  now  enjoy,  and  of  which  this  Government  provision 
for  speedily  supplying  our  wants  and  needs  forms  no  inconsiderable 
part. 

The  local  merchant  also  comes  in  for  his  share  of  advantage  to 
which  the  telephone  and  parcel  post  so  greatly  contribute.  The 
scope  of  his  patronage  is  now  broadened  and  enlarged.  One 
hundred  and  fifty  miles  of  territory  have  been  added  to  and  is  now 
tributary  to  the  field  of  his  industrial  enterprise,  and  he  can  fairly 
compete  with  mail  order  houses  by  the  lower  rates  of  postage  within 
this  zone — quite  an  item  in  his  favor — for  it  is  practically  a  rate  of 
1  cent  a  pound  or  but  little  more,  which  with  some  business  ability 
and  advertising  push  will  give  him  a  field  of  opportunity  wherein 
he  can  enter  with  every  prospect  of  at  least  an  equal  chance  with 
any  of  his  competitors. 

Training  Public  Officials 

The  following  editorial  article  from  the  Washington,  D.  C,  PosU 
while  not  relating  to  postal  affairs  particularly  but  treating  of  the 
public  service  generally,  has  yet  its  peculiar  significance  to  postal 
affairs  as  80  per  cent  of  all  public  employees  are  in  some  way  con- 
nected with  the  postal  service.  This  very  thoughtful  and  clearly 
expressed  editorial  contains  so  much  of  value  upon  a  subject  to 
which  but  little  attention  has  been  given,  that  the  matter  may  well 
occupy  a  share  of  public  concern  in  a  country  such  as  ours  where  so 
large  a  proportion  of  its  people  occupy  public  position. 

The  Post  says; 


74  The  American  Postal  Service 

There  has  been  a  steady  increase  in  the  number  and  variety  of 
Government  activities.  As  industry  has  become  more  complex 
more  Government  agencies  have  been  created  for  the  purpose  of 
regulation  and  control.  Unfortunately,  improvement  in  methods 
has  not  kept  pace  with  the  addition  of  new  agencies. 

Touching  upon  this  condition,  Prof.  Charles  A.  Beard,  of  Col- 
umbia University,  supervisor  of  the  training  school  for  public 
service,  recently  asked: 

"How  can  we  educate  the  public  up  to  an  appreciation  of  the 
necessity  for  trained  and  expert  service  in  every  branch  of  the 
Government?  How  can  we  order  our  public  service  so  that  it  will 
attract  the  ablest  men  and  women  and  guarantee  progressive 
careers  to  those  who  prove  loyal  and  efficient?  How  can  we  de- 
velop our  civil  service  commissions  into  genuine  recruiting  agencies 
capable  of  supplying  the  Government  with  exactly  the  type  of 
service  needed  for  any  given  movement  and  of  maintaining  a  loyal 
and  efficient  personnel?" 

If  promotions  were  more  certain  in  the  Government  service  there 
would  be  no  dearth  of  competent  men  to  fill  the  places  higher  up. 
To  solve  this  particular  phase  of  the  problem,  however,  it  will  be 
necessary  to  have  the  Government  pay  higher  salaries.  Better 
pay  is  now  available  in  private  industry  than  in  the  public  service, 
and  the  Government  has  not  yet  reached  the  point  where  there  is 
any  general  realization  of  the  sound  principle  that  it  is  better 
in  the  long  run  to  pay  high  salaries  to  efficient  men  than  to  employ 
mediocre  men  at  smaller  salaries. 

The  universities  and  colleges  can  do  their  part  in  training  young 
men  who  seek  elective  offices,  but  a  m«n  well  trained  for  office  might 
lack  the  qualities  which  make  for  political  success.  Many  foreign 
cities  are  run  by  experts.  A  large  city  frequently  hires  its  chief 
executive  from  some  neighboring  town.  A  competent  manager  in 
a  small  city  knows  that  he  has  an  excellent  chance  of  attracting 
attention  by  good  work  and  getting  a  promotion.  This  system 
has  been  tried  out  in  a  small  way  in  the  United  States,  where  a 
number  of  cities  have  hired  managers  to  take  full  charge,  with 
indifferent  results.  While  progress  toward  efficiency  is  apt  to  be 
slow,  the  increased  discussion  of  the  problem  is  certain  to  bear 
good  results  eventually. 

For  the  Benefit  of  the  Fourth  Class  Postmaster 

While  the  public  concern  has  received  the  utmost  attention, 
there  are,  however,  some  questions  of  interest  affecting  the  wel- 
fare of  postal  employees  which  should  be  given  consideration. 
It  is  but  common  justice  to  consider  the  present  method  of  pay- 
ment to  fourth-class  postmasters,  for  it  allows  them  but  small 
returns  for  their  labor.     If  the  same  high  standard  of  efficiency 


The  American  Postal  Service  75 

is  expected  of  them  which  should  obtain  in  the  service  generally, 
they  should  have  their  labor  properly  compensated.  At  present 
the  law  restricts  the  salaries  to  be  paid  according  to  the  volume 
of  outgoing  mail  at  their  office.  The  rural  carrier  who  works 
under  the  postmaster  is  under  no  such  restrictions,  is  better 
paid,  and  has  more  holiday  privileges.  The  fourth-class  post- 
master may  have  to  work  half  days  on  holidays  and  Sundays 
and  has  no  leave  of  absence.  The  rural  carrier  has  both.  The 
position  of  postmaster  may  therefore  be  said  to  be  less  desirable 
than  that  of  the  carrier,  though  his  official  responsibility  from  the 
nature  of  his  duties  is  greater.  At  the  recent  State  conven- 
tion of  third  and  fourth-class  postmasters,  held  at  Sunbury,  Pa., 
the  question  was  brought  up  and  a  reform  urged  in  the  matter. 
There  is  much  to  be  said  in  favor  of  a  more  equitable  adjustment, 
and  the  subject  can  be  approached  without  detriment  to  the  car- 
rier by  a  wider  and  more  comprehensive  view  of  the  duties  of  the 
postmaster  and  a  corresponding  improvement  in  the  method  of 
payment. 

The  introduction  of  the  parcel  post  as  a  great  common  carrier 
is  an  added  feature  in  connection  with  this  subject.  The  fourth- 
class  postmaster  receives  much  more  mail  than  he  sends  out. 
This  inequality  which  affects  his  pay  can  be  largely  corrected  if 
the  postmasters  in  cities  would  adopt  some  practical  measures 
towards  stimulating  orders  from  city  patrons  for  farm  produce 
which  could  be  shipped  by  mail.  The  organic  act  passed  by  Con- 
gress contemplated  such  advantageous  interchange  for  the  benefit 
of  the  fourth-class  postmaster  as  well  as  the  city  consumer,  and  a 
steady  and  persistent  effort  in  that  direction  by  the  city  post- 
masters would  greatly  assist  in  carrying  out  the  intention  of  Con- 
gress in  this  respect  and  popularize  the  plan  in  the  rural  sections 
by  the  reciprocal  advantages  it  would  confer.  The  fourth-class 
postmaster  could,  however,  greatly  benefit  himself,  even  under 
present  methods,  by  making  an  earnest  and  industrious  effort  to 
develop  the  parcel  post  idea  in  his  community,  embracing  the 
opportunities  of  his  official  relation  to  the  service  by  encouraging 
and  taking  an  active  part  in  every  detail  of  postal  management, 
of  which,  just  now,  the  parcel  post  is  so  conspicuous  a  feature 
and  whose  more  extended  use  among  the  people  would  so  greatly 
advance  his  official  as  well  as  his  personal  interest. 


76  The  American  Postal  Service 

Public  Work  and  Private  Control 

It  is  sometimes  asked  why  the  Post  Office  Department  cannot  be 
managed  as  if  it  were  in  the  hands  of  a  private  corporation.  Many 
reasons  might  be  given,  but  a  few  will  serve  to  explain  the  differ- 
ence and  perhaps  enlighten  the  public  who  may  expect  more  than 
the  Department  can  perform. 

In  the  first  place,  the  service  is  throughout  closely  controlled  by 
Congress  through  its  committee  on  Post  Offices  and  Post  Roads, 
and  no  important  variations  in  the  system  or  the  methods  of  admin- 
istration can  be  iuitiated  without  their  concurrence,  and  even 
if  any  particular  or  significant  change  is  proposed  by  such  com- 
mittee, it  is  not  always  possible  to  obtain  full  congressional  con- 
sent. Differences  between  the  administrative  heads  of  the 
Department  and  Congress  as  to  the  necessity  or  advantage  of  cer- 
tain plans  or  methods,  are  not  uncommon,  especially  when  any 
proposed  changes  antagonize  existing  usage  or  clash  with  party 
policy  or  expediency.  When  proposed  changes  invade  the  domain 
where  private  enterprise  has  interests  more  or  less  valuable  already 
estabhshed,  influence  may  be  brought  to  bear  to  counteract  the 
reforms  proposed,  based  on  honest  grounds  of  dissent  as  to  the 
real  benefit  or  practical  advantage  to  be  gained  by  the  adoption 
of  such  measures.  Unless  it  can  then  be  shown  that  public  in- 
terests would  be  benefited  by  the  changes  proposed,  the  De- 
partment might  have  difficulty  to  overcome  this  opposition. 

In  the  next  place,  corporate  control  moves  within  narrower 
limits  and  exercises  its  power  in  more  direct  fashion.  In  theory 
a  corporation  is  composed  of  its  stockholders,  a  majority  of  whom 
nominate  the  board  of  directors.  This  board  in  turn  appoints  the 
permanent  officials  and  they  exercise  full  control  in  operation. 
Wide  powers  are  given  to  these  men  and  the  policies  advanced  for 
extending  influence  and  gaining  profit  are  generally  adopted.  It 
is  quite  different  dealing  with  Congress.  New  policies  are  not 
always  accepted,  sometimes  rejected  or  ignored.  It  therefore 
follows  that  private  concerns,  having  a  freer  hand  and  no  com- 
plicated management  to  content  with,  can  institute  experiments 
and  try  methods,  and  if  well  conceived,  obtain  results  which  a  more 
restricted  authority  could  only  perhaps  with  difficulty  secure. 

A  striking  contrast  between  public  and  private  control  is  seen  in 
the  appropriation  system  by  which  the  Departments  are  governed. 
Aside  from  the  difficulty  often  experienced  in  securing  additional 


The  American  Postal  Service  77 

help  when  required,  which  would  be  readily  given  in  great  private 
concerns  because  of  expected  advantages  to  follow,  Department 
needs  are  sometimes  left  unsupplied  and  the  dispatch  of  business 
hindered  by  delay  in  this  respect,  or  in  the  installation  of  mechan- 
ical appliances  so  generally  used  now,  and  which  have  in  recent 
years  to  a  very  large  extent,  taken  the  place  of  human  agencies 
in  the  business  world. 

Perhaps  one  of  the  greatest  difficulties  which  obtains  in  public 
work  aside  from  what  has  been  already  mentioned  and  which 
has  hampered  more  rapid  progress  in  the  Post  Office  Depart- 
ment, was  the  tendency  and  practice  to  adhere  to  old-established 
rules  and  precedents.  These  lax  methods,  which  were  particularly 
apparent  in  the  business  customs  and  official  procedure  of  the 
Department,  were  so  firmly  imbedded  in  its  official  life  that  it 
required  a  firm  hand  and  a  positive  purpose  to  dislodge  them.  The 
present  Postmaster  General  had  both  the  courage  and  the  desire 
to  sweep  away  these  relics  of  a  bygone  period  and  substitute 
newer  and  more  suitable  methods  to  meet  progressive  conditions 
and  the  Department  is  now  conducted  as  it  should  be,  and  public 
complaints  caused  by  these  obsolete  and  unsuitable  measures  is 
now  largely  avoided. 

These  are  some  of  the  things  that  confront  and  have  con- 
fronted the  Department  in  its  efforts  towards  greater  efficiency. 
Conditions  must  be  taken  into  account  and  understood.  The 
Department  must  always  be  a  public  function  and  under  Govern- 
ment control  and  be  conducted,  more  or  less,  according  to  public 
usage.  While  red-tape  rules  and  customs  will  to  some  extent 
remain,  great  progress  has  been  made  in  many  directions  and 
public  methods,  by  skilful  management,  brought  nearer  to  the 
successes  of  business  life,  and  the  time  is  near  at  hand  when  the 
answer  to  the  interrogatory  first  propounded,  may  be  made 
in  the  affirmative. 

Protecting  the  Public  Records 

Among  the  many  useful  and  necessary  reforms  accomplished 
by  the  Postmaster  General  may  be  mentioned  the  institution  of  a 
hall  of  records  for  the  protection  of  the  files  and  valuable  papers 
which  belong  to  the  Department.  These  records  contain  the 
history  of  postal  administration  from  the  beginning  and  deserve 
the  most  careful  attention,  not  only  on  account  of  their  sentimental 
but  their  historical  value  as  well.    The  rise  and  progress  of  this 


78  The  American  Postal  Service 

index  to  our  developing  greatness  in  postal  progress  from  the  days 
of  Benjamin  Franklin  to  our  own  times,  is  recorded  in  the  volumes 
which  form  the  great  official  library  of  the  Department.  The 
opinions,  acts  and  State  papers  of  every  Postmaster  General  are 
found  here  and  a  complete  history  of  the  whole  postal  administra- 
tion could  be  compiled  from  these  records. 

It  is  a  matter  of  some  surprise  that  preceding  administrations 
paid  so  little  attention  to  the  care  and  proper  housing  of  these  val- 
uable files  and  papers.  For  years  they  were  stored  in  the  garrets 
and  attic  of  the  old  Post  Office  Building,  inconvenient  of  access, 
and  so  limited  in  space  that  any  semblance  of  order  was  next  to 
impossible.  Lying  there  for  years  practically  undisturbed,  a  prey 
to  the  ravages  of  dust  and  decay,  it  is  a  wonder  that  they  are  in  any 
condition  of  preservation  whatever.  The  traces  of  neglect  and 
ill-usage  has  left  its  marks  visibly  upon  these  old  volumes,  and 
but  for  the  quality  of  the  material  then  used  and  the  care  in 
binding  then  demanded  for  public  documents,  they  would  be  of 
but  little  service  now. 

To  Postmaster  General  Burleson  belongs  the  credit  of  rescuing 
these  valuable  archives  of  his  Department  from  ultimate  destruc- 
tion. Space  was  found  on  the  first  floor  of  the  building  for  storage 
and  arrangement.  A  force  of  clerks  from  each  Bureau  was 
detailed  for  this  work.  The  books  and  papers  were  removed  from 
the  nooks  and  corners  to  which  they  were  relegated  and  under 
careful  supervision  located  in  the  place  provided  for  them.  Ac- 
cumulations of  dust  brushed  off,  bundles  of  documents  neatly 
arranged  and  tied  anew,  frayed  edges  and  loosened  covers  attended 
to,  and  the  more  important  historical  records  set  apart  for  rebind- 
ing  when  necessary.  Protected  now  from  danger,  easy  of  access 
and  convenient  for  reference,  with  space  and  light  to  assist  in  gen- 
eral preservation,  these  records  can  now  be  readily  consulted,  time 
is  saved  in  search  and  conditions  in  every  way  made  serviceable 
and  satisfactory.  With  an  elaborate  and  carefully  devised  system 
of  indexing,  this  official  record  is  perhaps  the  most  complete 
of  any  of  the  Departments  of  the  Government. 

Registry,  Insurance,  and  CoUect-on-Delivery  Services  for 
the  Fiscal  Year  1916 

The  number  of  pieces  of  mail  registered,  insured,  and  sent  collect 
on  delivery  during  the  fiscal  year  ended  June  30,  1916,  is  shown 
in  the  following  statement : 


The  American  Postal  Service  ^d 

Registered  1916 

aid  registrations: 

Domestic  letters  and  parcels 29,091,506 

Foreign  letters  and  parcels 5,179,325 

Total  paid  registrations 34,270,831 

i*'ree  registrations — official 4,965,738 

Total  paid  and  free 39,236,569 

Amount  collected  for  registry  fees $3,427,083 .  10 

Insured 
Fourth-class  (domestic  parcel  post) : 

Total  pieces  insured  (3-,  5-,  10-,  and  25- 

cent  fees) 24,936,082 

Total  fees $1,067,192.29 

Collect  on  Delivery 
Fourth-class  (domestic  parcel  post)  pieces . .         6,300,546 
Fees $630,054.60 

Readjustment  of  Rate  for  Second-Class  Mail 

One  of  the  vexatious  problems  with  which  the  Department  has 
to  deal  is  that  relating  to  second-class  mail  matter  which  costs  the 
Government  several  times  over  what  is  received  therefrom  in  the 
way  of  revenue.  In  March,  of  1911,  Congress  passed  a  joint 
resolution  authorizing  the  appointment  of  a  commission  to  investi- 
gate the  subject  and  make  a  report  thereon.  The  president  se- 
lected Mr.  Justice  Hughes,  of  the  Supreme  Court,  President 
Lowell,  of  Harvard  University,  and  Mr.  Harry  A.  Wheeler,  of 
Chicago.  This  commission  found  that  the  cost  to  the  Govern- 
ment of  handling  and  transporting  this  mail  was  about  6  cents  a 
pound  for  which  the  Government  received  but  1  cent  a  pound. 
The  Department  recommended  an  increase  to  2  cents  a  pound 
which  was  approved  by  the  commission.  February  22,  1912, 
the  report  was  submitted  to  Congress  by  the  President,  who  urged 
favorable  consideration,  but  so  far  no  action  has  been  taken. 
Suggestions  as  to  desirable  changes  in  relation  to  second-class 
mail  matter  have  been  made  to  Congress  by  Postmaster  General 
Burleson,  in  which  several  ideas  as  to  a  more  equitable  arrange- 


60  The  American  Postal  Service 

ment  were  proposed,  by  which  the  Government  would  get  a  com- 
pensation more  nearly  in  accord  with  the  expense  of  this  service, 
but  without  result,  and  the  whole  subject  remains  undisposed  of 
with  the  prevailing  rate  still  in  force.  This  class  of  mail  increased 
93,184,891  pounds  over  that  of  the  year  1915,  notwithstanding 
the  higher  cost  of  paper  and  material.  The  readjustment  of  rates 
is  held  to  be  necessary  in  view  of  the  disproportion  of  revenue  to  the 
cost  of  handling  and  transportation. 

Postmaster  General  Charles  Emory  Smith  in  his  annual  report 
to  Congress  in  1900,  referring  to  the  cost  of  carrying  second-class 
mail  matter  as  hindering  the  progress  of  rural  delivery  extension, 
said: 

"In  my  last  annual  report  it  was  shown  that  if  a  class  of 
publications  which  now,  under  an  evasion  of  the  purpose  of  the 
law,  pay  the  second-class  rate  of  postage,  were  really  made  to  pay 
the  third-class  rate,  as  they  ought  to  do,  it  would  bring  an  addi- 
tional revenue  to  the  Government  of  $12,343,612.  This  amount 
is  lost  through  an  abuse  that  can  be  and  ought  to  be  rectified. 
It  is  a  public  contribution  without  any  public  advantage  for  the 
sole  benefit  of  a  few  private  interests.  .  .  .  If  it  is  a  question 
between  favoring  a  very  limited  number  of  publishers  and  favor- 
ing twenty-one  millions  of  people  who  live  on  the  farms  of  the 
United  States,  there  ought  to  be  no  hesitation  in  serving  the  many 
rather  than  the  few.  The  abuse  should  be  uprooted  as  a  public 
duty,  the  national  delivery  service  should  be  undertaken  as  a 
public  policy,  and  when  through  the  overthrow  of  the  wrong 
the  right  can  be  established  without  the  slightest  additional 
burden,  the  appeal  becomes  irresistible." 

Peculiar  Customs  of  European  Rural  Delivery 
Some  years  ago  at  the  request  of  Postmaster  General  Gary,  the 
Secretary  of  State  addressed  a  letter  to  each  of  our  ambassadors 
and  ministers  in  Europe,  asking  for  information  touching  the 
extent  and  character  of  rural  delivery  in  the  countries  to  which 
they  were  accredited.  In  the  answers  received  it  was  shown,  for 
example,  that  in  Great  Britain  there  was  substantially  a  house-to- 
house  rural  delivery,  only  the  most  inaccessible  domiciles  being  left 
un visited.  The  English  rural  postman,  traveling  chiefly  on  foot, 
walks  from  15  to  18  miles  a  day,  for  an  average  pay  of  18  shillings, 
or  $4.50  a  week.  A  paternal  government  provides  him  with  a 
uniform,  gives  him  $5  a  year  to  buy  shoes,  furnishes  him  medical 
attendance  when  sick,  and  permits  him  to  retire  on  a  small  pension 
after  ten  years  of  faithful  service. 


The  American  Postal  Service  81 

In  France  rural  carriers,  who  also  travel  on  foot,  are  paid  a  mile- 
age of  7}i  centimes  a  kilometer,  or  not  quite  2}^  cents  a  mile,  for 
the  distance  they  cover.  The  average  length  of  a  route  is  from 
10  to  15  miles,  and  they  are  required  to  cover  it  every  day  in  the 
year,  Sunday  included.  They  receive  an  allowance  for  clothing, 
and  may  retire  on  a  pension  at  the  end  of  fifteen  years.  The 
service  extends  into  every  commune,  and  practically  all  France 
is  covered  by  rural  free  delivery. 

In  Germany  the  delivery  of  mails  in  remote  rural  districts  is  not 
exactly  free.  Extra  postage  is  charged,  part  of  which  goes  to  the 
carrier  and  part  to  the  government.  The  pay  of  carriers,  outside 
of  this  allowance,  is  from  700  to  900  marks  a  year,  with  100  marks 
additional  for  house  rent  (a  German  mark  being  equivalent  to  24 
cents  of  our  money). 

In  Austria-Hungary  the  rural  carrier  is  hired  by  the  postmaster 
of  the  local  oflSce  to  which  he  is  attached  and  paid  by  him.  He  is 
authorized  to  collect  a  fee  of  half  a  cent  on  all  letters  and  an  eighth 
of  a  cent  on  all  newspapers  delivered  by  him.  His  average  pay  is 
about  $120  a  year.  To  earn  this  sum  he  travels  10  miles  a  day, 
always  on  foot.  Before  he  can  enter  upon  his  duties  he  has  to 
make  a  deposit  of  $80  (or  two-thirds  of  a  year's  salary)  with  the 
postmaster  as  security  for  carrying  out  his  contract. 

The  Belgian  rural  carrier  makes  a  daily  round  trip  of  15  or  16 
miles  on  foot,  and  is  paid  a  salary  which  varies  according  to  the 
supposed  cost  of  living  in  the  district  where  he  serves,  but  which 
seldom  exceeds  $250  a  year.  He  is  denied  the  right  to  vote, 
and  prohibited  from  taking  part  in  politics. 

What  Was  a  Newspaper?    Act  of  1825 

During  the  administration  of  Postmaster  General  Wickliffe 
of  Kentucky  the  question  was  raised  what  in  the  meaning  of  the 
postal  law.  Act  of  1825,  constitutes  a  newspaper.  The  Shipjring 
and  Commercial  List  and  New  York  Price  Current  claimed  that  it  was 
a  newspaper  and  entitled  to  the  newspaper  rate.  It  had  been  so 
regarded  prior  to  1837,  but  afterwards  as  subject  to  letter  postage. 
The  Postmaster  General  wanted  light  upon  the  subject  and  the 
question  was  submitted  to  the  Attorney  General,  Hon.  H.  S. 
Legare  for  an  opinion.  As  his  spirited  reply  may  interest  news- 
paper men  of  today  as  well  as  others,  the  principal  parts  of  the 
opinion  are  subjoined: 


82 


The  American^Postal  Service 


"The  only  light,  a  very  uncertain  one,  is  the  use  of  the  word, 
'newspaper*  in  common  parlance  or  in  the  English  Stamp  Acts. 
According  to  the  statute  it  must  be  (1)  periodically  published;  (2) 
at  intervals  not  exceeding  two  days;  (3)  must  contain  public  news 
or  remarks  thereon;  (4)  that  it  contain  not  more  than  two  sheets. 
Thus  it  may  be  admitted  that  the  paper  must  be  published  at  short 
intervals,  but  what  is  a  short  interval?  There  are  many  weekly 
newspapers,  why  not  monthly?  It  may  be  doubted  whether  the 
intervals  need  be  exactly  stated.  The  passing  events  may  be 
diversified  according  to  the  tastes,  the  fancies,  the  wants  or 
convenience  of  mankind.  The  monthly  catalogue  of  new  pub- 
lications will  be  of  interest  to  a  scholar,  proceedings  of  tribunals  to 
a  lawyer,  theaters  or  new  fashions  iii  dress  to  the  idle  and  the  gay, 
etc.,  bulletins  of  battles  to  a  soldier,  price  currents  to  a  merchant, 
etc.  A  newspaper  is  more  likely  to  please  a  majority  of  readers 
which  meets  all  tastes.  Why  should  a  devout  man  be  annoyed  by 
puffs  of  opera  dancers,  members  of  a  total  abstinence  society  with 
tempting  sales  of  wines  and  liquors,  a  plodding  man  of  business 
with  dissertations  on  books,  or  a  bookish  man  with  columns  of 
business  advertisements?" 

The  decision  states  in  conclusion  that  "  The  Shipping  and  Com- 
mercial List  to  be  treated  as  a  newspaper  must  be  sent  open  and 
without  any  written  signature  or  note." 

Women  in  the  Post  Office  Department 

The  women  of  the  United  States  owe  an  everlasting  debt  of 
gratitude  to  Frances  E.  Spinner  for  opening  to  them  the  door  of 
opportunity  for  employment  in  the  public  service.  Salmon  P. 
Chase  was  Secretary  of  the  Treasury  in  the  administration  of 
President  Lincoln  and  General  Spinner  was  the  Treasurer  of  the 
United  States.  Many  of  the  clerks  of  the  Treasury  had  joined  the 
army,  and  General  Spinner  suggested  to  the  Secretary  the  employ- 
ment of  women  in  their  stead.  Though  his  suggestion  met  with 
considerable  opposition  at  the  time,  the  wishes  of  General  Spinner 
finally  prevailed,  and  Secretary  Chase  gave  his  consent  to  the 
appointment  of  women,  and  the  avenues  of  public  employment 
were  opened  to  them. 

Since  that  time  the  employment  of  women  in  the  public  service 
has  become  general,  and  they  may  now  be  found  in  all  the  Depart- 
ments, in  post  offices  and  as  mail  carriers  on  the  post  roads  of  the 
United  States.  The  most  recent  register  of  employees  in  the 
Post  Office  Department  shows  that  it  had  upon  its  pay  rolls 
for  the  Department  proper,  sixty-two  women  receiving  $1,200  per 


The  American  Postal  Service 


83 


annum,  thirty-two  at  $1,400  per  annum,  ten  at  $1,600  per  annum, 
three  at  $1,800,  forty-three  at  $1,000  per  annum,  besides  many 
more  at  lesser  salaries.  The  act  of  General  Spinner  in  opening 
the  door  of  the  public  service  to  women  doubtless  had  its  gen- 
eral effect  in  private  employment  as  well,  for  from  the  close  of 
the  Civil  War  the  entrance  of  women  into  the  business  relations 
of  the  country  may  be  safely  dated. 

Many  of  the  women  in  the  Departments  occupy  positions  of 
responsibility  and  importance,  and  fill  such  positions  with  credit 
to  themselves  and  the  service  as  well. 

Railroad  Accidents  and  the  Construction  of  Mail  Cars 

There  were  163  railroad  accidents  during  the  fiscal  year,  1916, 
of  which  155  resulted  in  injuries  to  clerks,  and  eight,  exclusive  of 
those  in  which  clerks  were  injured,  resulted  in  loss  or  damage  to 
mail. 

The  following  table  shows  the  kind  and  construction  of  the  mail 
cars  in  which  accidents  to  clerks  occurred: 


Kind  of  car 

Number 
of  cars 
in  acci- 
dents 

Number 

of  clerks 

in  these 

cars 

Clerks 
killed 
or  died 
as  re- 
sult of 
injuries 

Clerks 
seri- 
ously 
injured 
in  these 
cars 

Clerks 
slightly 
injured 
in  these 
cars 

Total 
clerks 
injured 

and 

killed  in 

these 

cars 

Wood 

57 

18 
67 

22 

76 

25 

258 

57 

1 
'  1  ' 

18 

12 

28 
9 

42 

9 
86 
21 

61 

Wood-steel     re- 
enforced  

21 

Steel 

115 

Steel  underframe 

30 

Total 

164 

416 

2 

67 

158 

227 

Public    Ownership    of    Postal    Telegraphs    and 
Telephones 

Opinion  of  Postmaster  General  Burleson 
Postmaster  General  Burleson,  in  his  annual  report  to  Congress 

for  1916,  made  the  following  statement  regarding  Postal  Telegraphs 

and  Telephones : 

"As  the  former  reports  pointed  out,  the  private  ownership  of 

telephone  and  telegraph  utilities  places  in  private  hands  the 


84  The  American  Postal  Servicb 

control  of  important  vehicles  for  the  transmission  of  intelligence, 
and  therefore  infringes  upon  a  function  reserved  by  the  Constitu- 
tion to  the  National  Government.  Operation  of  these  facilities 
inherently  as  well  as  constitutionally  belongs  to  the  Postal  Service. 
Attention  again  is  called  to  the  legal  precedents  and  the  attitude 
of  former  postmasters  general,  as  briefly  stated  in  my  report  for 
1914: 

"That  it  has  been  the  policy  of  this  Government  to  ultimately 
acquire  and  operate  these  electrical  means  of  communication  as 
postal  facilities,  as  is  done  by  all  the  principal  nations,  the  United 
States  alone  excepted,  is  evidenced  by  the  fact  that  the  first 
telegraph  line  in  this  country  was  maintained  and  operated  as  a 
part  of  the  Postal  Service,  and  further  by  the  Act  of  July  24, 1866, 
which  provided  for  the  Government  acquisition  of  the  telegraph 
lines  upon  the  payment  of  an  appraised  valuation,  and  again  by  the 
act  of  1902,  which  directed  the  Postmaster  General  *to  report 
to  Congress  the  probable  cost  of  connecting  a  telegraph  and 
telephone  system  with  the  Postal  Service  by  some  feasible  plan/ 

"  *  It  is  an  interesting  fact  that,  whereas  policies  of  Government 
have  been  advocated  and  some  adopted,  the  constitutionality  of 
which  have  been  seriously  questioned,  the  principle  of  Govern- 
ment ownership  and  control  of  the  telegraph  and  telephone  finds 
its  greatest  strength  in  the  Constitution.  This  opinion  has  been 
shared  by  practically  all  Postmasters  General  of  the  United 
States,  who  have  held  that  the  welfare  and  happiness  of  the  nation 
depend  upon  the  fullest  utilization  of  these  agencies  by  the  people, 
which  can  only  be  accomplished  through  Government  ownership. '  '* 

Liquor  Carried  by  the  Mails 

In  view  of  the  rapid  spread  of  prohibition  sentiment  in  the 
country  during  the  past  few  years,  it  may  be  of  interest  to  know 
that  the  activities  then  already  apparent  to  check  in  every  pos- 
sible way  convenient  access  to  this  demoralizing  evil,  found  in  a 
limited  sense  the  aid  and  support  of  the  Post  OflSce  Department. 

There  was  a  growing  suspicion  that  trajQSc  in  the  carrying  of 
liquor  from  one  point  to  another  on  the  lines  of  the  star-route 
service  by  carriers  was  being  conducted,  and  this  suspicion  after- 
wards developed  into  loud  and  persistent  complaints  which  finally 
reached  the  Department  and  attracted  official  attention.  It  was 
stated  that  liquor  was  being  conveyed  by  these  carriers  to  points 
in  local  option  territory  and  even  distributed  among  the  Indians, 


The  American"  Postal  Service  85 

a  practice  which  the  Government  was  particularly  anxious  to  pre- 
vent. The  matter  was  finally  brought  to  the  attention  of  Post- 
master General  Von  Meyer  who  at  once  took  steps  to  interfere 
with  this  traffic.  After  some  consultation  as  to  the  best  means 
of  stamping  out  this  evil,  a  clause  was  inserted  in  the  advertise- 
ment for  star-route  service  and  later  embodied  in  every  contract 
upon  which  awards  were  made.  This  statement  says :  "  It  is  further 
agreed  that  the  contractor  or  carrier  shall  not  transport  intoxicat- 
ing liquor  from  one  point  to  another  on  this  route  while  in  the 
performance  of  mail  service." 

This  positive  Governmental  interference  with  the  traffic  in 
liquor  by  means  of  the  mails  may  not  be  generally  known,  and  it  is 
mentioned  here  that  credit  might  be  given  to  Postmaster  General 
Von  Meyer  for  an  act  which  destroyed  a  growing  evil,  covertly 
conducted,  and  put  a  stop  to  a  practice  which  was  doing  damage 
in  a  great  many  sections. 

By  Act  approved  March  3,  1917,  providing  for  appropriations 
for  the  Post  Office,  no  letter,  postal  card,  circular,  newspaper, 
etc.,  containing  any  advertisement  of  spirituous,  vinuous,  malted, 
fermented  or  other  intoxicating  liquor  of  any  kind,  or  containing  a 
solicitation  of  an  order  for  said  liquors,  shall  be  deposited  in  or 
carried  by  the  mails  of  the  United  States,  or  be  delivered  by  any 
postmaster  or  letter  carrier  addressed  and  directed  to  any  per- 
son, firm,  corporation  or  association  at  any  place  or  point  in  any 
State  or  territory  of  the  United  States,  at  which  it  is  by  the  law 
in  force  in  such  State  and  Territory  at  that  time  unlawful  to  adver- 
tise or  solicit  orders  for  such  liquors  or  any  of  them  respectively. 

How  the  Post  Office  Department  Helps  the  Farmer 
Of  all  the  great  Executive  Departments,  the  Post  Office  comes 
closest  to  the  people  and  is  of  particular  interest  to  the  farmer 
living  away  from  the  great  avenues  of  postal  service  supply.  The 
Postmaster  General,  from  his  service  in  Congress,  where  the  needs 
of  the  farmer  are  known,  coupled  with  the  opportunities  of  his 
present  position,  was  able  to  render  him  a  great  service,  and  that 
he  has  done  so,  that  his  administration  has  shown  his  successful 
efforts  in  this  direction  cannot  be  questioned  nor  denied. 

The  Parcel  Post  with  all  its  beneficient  possibilities  and  advan- 
tages received  early  consideration.  It  meant  so  much  to  the 
farmer  that  zealous  and  persistent  attention  was  wisely  directed  to 
obtain  the  utmost  that  could  be  accomplished.    Weight  limits 


86  The  American  Postal  Service 

were  extended,  postage  reduced  by  zone  expansion,  and  the  project 
put  upon  such  practical  basis  that  great  benefits  are  aheady 
assured  and  further  progress  only  waits  legislative  sanction.  City 
and  country  are  now  brought  together.  Suburban  express,  the 
result  of  motor  service,  gives  the  farmer  an  easily  reached  and 
remunerative  market  and  the  consumer  finds  upon  his  daily  table 
the  fresh  products  which  this  rapid  means  of  communication  from 
the  farm  can  so  readily  supply.  The  Parcel  Post  is  one  of  the 
most  popular  measures  of  this  administration  and  everything 
possible  has  been  done  to  foster  and  perfect  it. 

The  Rural  Free  Delivery  with  its  millions  of  patrons,  of  which 
over  650,000  were  added  within  the  past  three  years,  tells  the 
story  of  administrative  accomplishment.  The  great  success  of 
rural  delivery  is  peculiarly  the  farmers  triumph.  He  is  now  on  a 
par  with  his  neighbor  in  the  cities  in  all  that  enterprising  postal 
service  can  give.  Taken  both  together,  the  widely  admitted 
success  of  the  Parcel  Post  as  well  as  the  rural  delivery,  a  chapter 
of  achievement  has  been  written  of  which  the  Department  is  justly 
proud  and  against  which  criticism  can  find  no  ground  for  righteous 
complaint. 

But  this  is  not  all  that  this  administration  has  done  for  the  man 
in  the  country.  The  energetic  application  of  the  experimental 
legislation  appropriating  $500,000  for  participation  in  the  con- 
struction of  improved  highways  has  brought  forth  an  additional 
appropriation  of  $75,000,000,  which  will  be  expended  by  the 
Federal  Government,  in  cooperation  with  the  States,  for  the 
improvement  of  roads  over  which  mail  delivery  is  performed,  or 
on  which  it  may  be  located  hereafter.  The  Rural  Credit  and  Good 
Roads  bills  are  subjects  of  profound  interest  which  even  partisan 
prejudice  cannot  minimize  or  obscure.  The  tremendous  advantage 
which  these  two  great  measures  afford  the  farmer  will  be  readily 
admitted  and  recognized  when  seen  in  practical  operation.  The 
need  of  such  beneficient  help  has  long  been  felt  and  these  two  bills 
should  make  the  lot  of  the  farmers  much  easier.  They  have  been 
getting  reasonably  good  prices  for  their  products  and  are  generally 
prosperous,  but  the  fact  remains  that  but  few  hold  their  land  free  of 
incumbrance.  Complete  ownership  will  now  be  possible.  With 
federal  aid  to  road  construction  and  this  new  rural  credits  law, 
it  should  not  be  long  until  the  greatest  prosperity  the  country 
sections  have  ever  known  should  be  an  accomplished  fact. 


Thb  American  Postal  Servicb  87 

Expediting  the  Mail  on  Star  Routes 
Attention  is  called  elsewhere  to  the  benefit  of  motor  vehicle 
service  in  rural  delivery,  and  it  is  now  proposed  to  introduce  this 
advantage  in  the  star-route  service  as  well.  Until  a  short  while 
ago  there  was  no  authority  for  any  particular  form  of  conveyance 
to  be  used  in  this  connection.  With  the  advent  of  automobiles 
and  other  motor  vehicles,  it  became  evident  that  great  opportuni- 
ties presented  themselves  by  which  the  transportation  of  mails  on 
this  class  of  routes  could  be  measurably  expedited  and  during  the 
present  administration  the  law  was  so  amended  that  the  mode  of 
transportation  could  be  specified. 

The  demand  of  the  day  is  for  the  rapid  conveyance  of  mails  in 
every  direction  and  people  are  no  longer  satisfied  to  put  up  with 
the  practices  and  methods  of  other  days.  That  mails  have  been 
conveyed  in  this  service  with  "due  celerity,  certainty  and  se- 
curity" was  not  enough.  Money  is  paid  for  service  and  the  best 
that  can  be  given  is  required.  So  it  was  decided  to  expedite  star- 
route  service.  While  there  are  a  number  of  routes  on  which  auto- 
mobiles are  now  used  in  view  of  the  provision  of  law  as  covered  by 
the  order  of  the  Postmaster  General,  August  14,  1916,  amending 
section  No.  1424  to  correspond  with  the  law  as  amended,  steps  are 
now  being  taken  in  connection  with  the  award  of  contracts  for  the 
the  four-year  term  beginning  July  1, 1917,  which  includes  the  con- 
tract section  from  Maine  to  West  Virginia,  to  require  the  use  of 
motor  vehicles  wherever  the  importance  of  the  route  seemed  to 
warrant  and  weather  conditions  would  permit  the  use  of  such  con- 
veyance. One  hundred  and  forty  advertisements  are  now  pending 
for  such  service  in  this  contract  section. 

This  is  going  to  be  a  great  accommodation  for  all  routes  where 
such  service  can  be  employed  and  will  give  the  people  the  best 
mail  facilities  that  can  be  devised.  It  will  hasten  the  receipt 
and  dispatch  of  mails  by  means  of  rural  carrier  connections,  be  of 
great  advantage  to  the  business  men  along  such  routes,  expedite 
newspaper  delivery  and  in  many  cases  save  twenty-four  hours  over 
the  present  method.  Every  effort  will  be  made  to  introduce  this 
more  rapid  service  as  quickly  and  widely  as  the  laws  will  permit. 
If  it  is  found  to  work  well  in  this  first  contract  section  where 
it  is  to  be  tried,  it  will  be  extended  to  others  in  regular  succession 
until  the  star-route  service  everywhere  has  the  benefit  of  this 
improved  means  of  communication. 


88 


The  American  Postal  Service 


Abraham  Lincoln  Postmaster  in  1837 

So  much  has  been  said  and  written  about  Abraham  Lincoln 
that  it  would  seem  as  if  nothing  new  could  be  mentioned.  In  fact 
his  history  and  biography  are  as  well  known  to  the  school  chil- 
dren as  that  of  George  Washington,  but  it  is  probably  not  gen- 
erally known  to  the  postmasters  of  the  country  that  he  was  at  one 
time  in  the  postal  service  as  a  postmaster,  and  in  a  book  devoted 
entirely  to  postal  affairs  it  may  be  of  interest  to  state  the  fact 
that  this  additional  incident  in  his  life  and  public  career  may  be 
added  to  what  is  already  known. 

Mr.  T.  H.  Bartlett,  in  the  Boston  Transcript^  says: 

It  will  interest  Lincoln  lovers  to  learn  that,  as  far  as  known, 
probably  the  first  time  that  Abraham  Lincoln's  name  was  men- 
tioned in  print  was  in  the  United  States  Biennial  Register  for  1837. 
It  was  in  the  Post  Office  Department,  as  "Postmaster  at  New 
Salem,  111.,  Abraham  Lincoln,  1  quar.,  10-19-48."  The  Register 
contained  the  names  of  every  officer  and  employe  for  that  year. 

So  people  who  keep  scrap  books  in  which  to  note  peculiar  events 
and  occurrences  in  the  lives  of  great  men  may  add  this  little 
item  to  their  collection,  for  everything  connected  with  the  life  of 
Abraham  Lincoln  is  worthy  of  notice. 

A  Central  Accounting  Office  for  Each  County 

A  very  notable  and  far-reaching  measure  of  public  administra- 
tion in  the  conduct  of  the  Post  Office  Department  was  enacted  in 
the  past  session  of  Congress  by  which,  in  order  to  promote  economy 
in  the  distribution  of  supplies  and  in  auditing  and  accounting, 
the  Postmaster  General  was  authorized  to  designate  districts 
and  central  offices  in  such  districts  through  which  supplies  shall 
be  distributed  and  accounts  rendered.  This  means  in  other 
words  that  one  postmaster  in  a  county  is  hereafter  to  distribute 
supplies  for  the  other  post  offices  and  render  an  account  to  the 
auditor  for  all  the  offices  in  a  certain  county  or  district,  thus  simpli- 
fying the  whole  subject  and  placing  the  business  involved  at  each 
of  these  offices  under  one  central  control.  This  is,  however,  not  to 
give  such  central  office  authority  to  abolish  offices,  to  change 
officers  or  employees  in  offices  included  in  such  district. 

The  law  goes  into  eiBPect  July  1,  1917,  and  the  Postmaster 
General  will  appoint  a  committee,  of  which  the  First  Assistant 
Postmaster  General  will  probably  be  chairman,  to  estabHsh  the 


The  American  Postal  Service  89 

system  and  select  the  central  oflSce  in  each  district  or  county  to 
which  the  other  offices  are  to  report,  and  under  whose  general  con- 
trol this  plan  is  to  be  conducted. 

Millions  of  Money  'or  Good  Roads 

That  good  roads  are  an  important  factor  in  the  spread  of 
civilization  is  a  statement  which  no  one  will  dispute.  Imperial 
Rome  in  the  zenith  of  its  power  perfectly  understood  this.  The 
marvellous  genius  and  industry  which  constructed  its  great  high- 
ways of  commerce  and  travel,  works  which  have  been  the  admira- 
tion of  all  succeeding  ages,  are  yet  splendid  even  in  their  decaying 
greatness.  Prescott,  the  historian,  in  his  romantic  history  of 
Peru,  tells  of  the  wonderful  engineering  skill  displayed  in  the 
reigns  of  the  early  Peruvian  rulers  in  the  building  of  their  great 
military  roads,  which  served  alike  the  purpose  of  a  peaceful 
people  as  well  as  the  rapid  assembling  of  its  armies  for  warlike 
action.  No  nation  now  neglects  this  very  important  part  of  its 
economic  life,  and  the  United  States  having  become  a  power  in 
universal  civilization  is  fully  alive  to  all  the  measureless  advantages 
which  good  roads  afford. 

Material  prosperity  waits  upon  road  development  and  land  values 
rise  in  proportion  to  road  improvement.  A  few  striking  instances 
may  be  mentioned  as  illustrating  this  fact.  Wallace's  Farmer 
has  stated  that: 

"In  Franklin  County,  New  York,  where  24  miles  of  good  roads 
have  been  built,  eight  pieces  of  land  selected  at  random  increased 
27.8  per  cent  in  value.  In  Lee  County,  Virginia,  which  built 
eighty-four  miles  of  roads,  land  advanced  25  per  cent  in  value. 
Spottsylvania  County,  in  the  same  state,  improved  forty-one 
miles  of  roads,  and  the  land  adjoining  sold  for  $44.75  where 
previous  to  the  improvement  it  had  been  bought  for  just  $20  less 
per  acre .  After  Manatee  County,  Florida,  had  constructed  sixty- 
four  miles  of  macadam  and  shell  highway,  the  land  along  the 
road  increased  more  than  $20  per  acre  in  less  than  two  years,  and 
the  land  a  mile  away  from  the  road  showed  an  increase  of  $10 
an  acre.  In  Wood  County,  Ohio,  where  land  has  been  drained 
and  bounded  by  limestone  pikes,  the  values  have  risen  from  $70 
to  $250  per  acre." 

The  New  York  Journal  of  Commerce  says  "there  are  few  agencies 
that  are  so  fruitful  of  economic  good,  social  and  political  solidarity, 


90  The  American  Postal  Sbrvicm 

and  even  national  spirit."  The  very  great  desire  of  the  Post 
Office  Department  to  extend  and  improve  the  rural  delivery  serv- 
ice is  an  ever  present  argument  in  favor  of  good  roads,  without 
which  no  extensions  or  improvements  are  possible.  The  life  of 
the  country  church,  the  country  school,  the  whole  question  of  in- 
tensive and  scientific  farming  is  involved  in  the  subject  of  good 
roads,  and  in  its  wider  and  broader  aspect  the  question  takes  on 
a  new  and  a  very  significient  meaning.  Originally  intended  to 
promote  and  foster  the  arts  of  peace,  military  needs  now  claim 
national  attention.  Quoting  again  from  the  Journal  of  Commerce: 
"Mobilization,  defense,  and  the  transportation  of  troops,  muni- 
tions, and  supplies,  are  in  a  large  part  dependent  upon  an  ade- 
quate system  of  highways,  especially  along  the  sea  coasts  and 
national  borders.  The  experience  of  all  the  warring  nations  of 
Europe  in  the  present  conflict,  are  ample  proof  of  this.  Only 
the  future  will  show  whether  or  not  these  objects  have  been  kept 
in  view  when  the  national  appropriation  is  spent." 

The  Government  has  set  aside  for  the  year  ending  June  30, 
1919,  the  sum  of  $14,550,000  as  an  apportionment  to  the  States 
to  aid  in  the  construction  and  maintenance  of  rural  post  roads 
in  accordance  with  the  provision  of  the  Federal  aid  roads  law. 
$20,000,000  will  be  apportioned  for  1920,  and  $25,000,000  for  1921. 
This  is  the  third  apportionment  under  the  law,  $4,850,000  having 
been  apportioned  for  1917  and  $9,700,000  for  1918.  The  Bureau 
of  Public  Roads  states  that  the  expenditures  for  road  and  bridge 
building  in  the  United  States  have  increased  from  about  $80,- 
000,000  a  year  in  1904  to  $282,000,000  in  1915,  or  more  than 
250  per  cent. 

These  figures  are  as  amazing  as  they  are  impressive,  and  they 
must  carry  to  the  mind  of  the  reader  the  solicitude  of  his  govern- 
ment for  all  that  makes  for  national  prosperity  and  advancement. 
There  was  a  time  when  good  roads  were  a  luxury  and  only  a  few 
States  in  the  East  paid  any  attention  to  this  question.  With  the 
advent  of  the  automobile  came  a  great  change.  Rides  for  pleasure 
as  well  as  for  gainful  pursuits  required  better  conditions,  and  for 
both  purposes  good  roads  became  everywhere  a  question  of  para- 
mount importance.  The  farmer  whose  improved  surroundings 
permitted  this  now  common  luxury,  wanted  the  benefit  of  it,  and 
the  demand  for  better  road  conditions  found  its  way  into  the 


I 


The  American  Postal  Service  91 

halls  of  legislation  in  the  States,  and  in  the  Congress  of  the  Nation, 
and  the  answer  to  this  demand  upon  the  part  of  the  Federal  govern- 
ment is  the  magnificent  appropriation  which  is  now  available  and 
to  be  expended  for  this  far  reaching  purpose. 

Rural  delivery  in  which  the  rural  resident  is  so  greatly  interested 
will  profit  most  by  this  liberal  government  provision,  it  being 
originally  intended  for  post  road  purposes,  of  which  rural  delivery 
is  now  the  principal  and  most  important  part.  The  rural  life  of 
the  country  is  to  be  bettered  in  every  way  by  the  spread  of  this 
means  of  postal  communication.  The  Post  Office  Department  is 
always  ready  to  listen  to  every  suggestion  which  makes  for  greater 
comfort  and  convenience  in  this  direction,  and  to  act  promptly 
when  resulting  advantages  can  be  shown.  Therefore,  the  sections 
where  rural  delivery  is  not  as  fully  introduced  and  developed  as 
it  might  be,  or  inviting  fields  for  exploration  and  administrative 
action  are  not  yet  reached,  the  people  for  whose  benefit  this 
money  is  to  be  used  should  get  in  touch  with  the  Department  and 
bring  to  its  attention  whatever  information  upon  the  subject  they 
may  possess  which  might  be  fashioned  into  useful  results.  The 
Department  has  many  eyes  but  cannot  see  all  and  know  all,  and 
this  is  where  outside  assistance  can  be  of  great  advantage,  and 
would  be  most  gladly  welcomed.  Postal  patrons  are  the  working 
partners  of  the  Postmaster  General  in  all  that  concerns  the  im- 
provement and  extension  of  the  service,  and  if  they  will  take  the 
same  active  interest  that  he  does  and  cooperate  with  the  Fourth 
Assistant  Postmaster  General,  in  whose  Bureau  this  rural  delivery 
work  is  centered,  great  advances  in  all  directions  may  be  readily 
made. 

$14,550,000  for  Rural  Post  Roads 

Apportionment  to  the  States  from  government  funds  to  aid  in 
the  construction  and  maintenance  of  rural  postroads  in  accordance 
with  the  Federal  aid  roads  law  for  the  year  ending  June  30,  1919, 
is  as  follows: 

Alabama $313,456  Maryland 130,871 

Arizona 205,540  Massachusetts 221,261 

Arkansas 250,018  Michigan 435,356 

California 456,167  Minnesota 425,865 

Colorado 257,278  Mississippi 268,751 

Connecticut 92,216  Missouri 508,603 

Delaware 24,411  Montana 298,520 

Florida 170.723  Nebraska 319,445 

Georgia 403,909  Nevada 193,229 


02 


The  American  Postal  Service 


New  Hampshire 62,610 

New  Jersey 177,357 

New  Mexico 238,634 

New  York 749,674 

North  Carolina 342,556 

North  Dakota 229,585 

Ohio 558,043 

Oklahoma 346,489 

Oregon 236,332 

Pennsylvania 690,145 

Idaho 182,471 

Illinois 658,323 

Indiana 406,230 

Iowa 434,653 

Kansas 429,131 


Kentucky 292,984 

Louisiana 203,755 

Maine 144,807 

Rhode  Island 34,972 

South  Carolina 215,014 

South  Dakota 243,175 

Tennessee 340,663 

Texas 876,986 

Utah 170,763 

Vermont 68,128 

Virginia 298,120 

Washington 216,530 

West  Virginia 159,713 

Wisconsin 382,707 

Wyoming 183,805 


Mail  Extensions  by  Air  and  Motor  Truck  Routes 

As  the  result  of  a  recent  conference  between  Postmaster  General 
Burleson  and  Secretary  of  War  Baker,  and  with  the  approval  of 
the  President,  Congress  has  been  asked  to  authorize  the  Secretary 
of  War  to  turn  over  to  the  Post  Office  Department  all  military 
aeroplanes  and  motor  vehicles  not  serviceable  for  military  pur- 
poses, or  which  after  the  war  may  be  dispensed  with  for  military 
service. 

As  soon  as  any  aeroplanes  are  turned  over  to  the  Post  Office 
Department,  aeroplane  mail  routes  will  be  established  in  the 
country,  as  they  now  are  in  Italy  and  France. 

Italy  has  an  aerial  mail  route  from  her  coast  to  Sardinia,  and  is 
able  to  deliver  500  pounds  of  miail  in  two  hours.  France  has  a 
similar  aerial  route  between  her  coast  and  Corsica. 

The  motor  trucks  procured  from  the  War  Department  at  this 
time  or  at  the  close  of  the  war  will  be  available  for  the  parcel  post 
truck  service.  In  the  view  of  the  Postmaster  General,  the  opera- 
tion of  these  motor-truck  routes  would  add  100  per  cent  to  the 
value  of  the  parcel  post  service  in  the  vicinity  of  the  cities  where 
established. 

The  cost  of  living  will  be  reduced,  it  is  stated,  by  eliminating 
useless  and  expensive  operation  in  the  postal  means  of  communica- 
tion between  producer  and  consumer;  will  permit  the  producer  to 
continue  production  and  the  labor  incident  thereto,  instead  of 
suspending  production  or  labor  while  conveying  produce  to  con- 
sumers, and  will  extend  the  postal  zone  of  coUection-and-delivery 
service  in  the  vicinity  of  large  cities  to  the  point  where  the  actual 
farmer-producer  is  domiciled  rather  than  where  only  surburban 
residents  and  nonproducers  live. 


The  American  Postal  Service  OS 

Care  Required  in  Preparing  Contracts 

Among  the  most  important  duties  which  a  postmaster  is  called 
upon  to  perform  is  seeing  that  contracts  for  star-route  service 
are  properly  filled  out  before  being  sent  to  the  department.  These 
contracts  are  of  a  legal  nature  and  while  the  necessary  provisions 
are  plainly  stated  and  simple  enough  to  be  easily  understood, 
extreme  care  must  be  exercised  to  see  that  the  instructions  are 
complied  with.  Spaces  for  the  signatures  of  the  contractor,  the 
sureties  and  witnesses  properly  filled  out,  dates  given,  names 
plainly  written  wherever  required  and  the  contractor  should  per- 
sonally examine  the  contract  to  see  that  all  this  is  carefully  done. 
Failure  to  note  these  necessary  details  causes  the  return  of  the 
contract  for  correction,  delaying  its  acceptance  and  imposing  ex- 
tra and  unnecessary  work  upon  the  contract  clerk.  It  may  also 
be  stated  that  as  failure  to  perform  service  on  the  part  of  the 
contractor  is  liable  to  bring  these  contracts  into  courts  of  law  for 
judicial  determination,  it  becomes  of  the  highest  importance  that 
nothing  required  to  be  done  is  omitted  in  preparation  and  the 
contract  be  correct  in  form  and  in  every  particular. 

Birthday  of  the  American  Postal  Service 

On  the  twenty-sixth  of  July,  1917,  the  postal  service  of  the 
United  States  can  celebrate  the  one  hundred  and  forty -third 
anniversary  of  its  establishment.  It  was  on  July  26,  1775,  nearly 
a  year  before  the  independence  of  the  colonies  was  proclaimed, 
that  the  freedom  of  postal  affairs  was  made  an  accomplished  fact. 
The  British  control  had  existed  for  eighty-three  years,  from  1692 
to  1775.  There  was  only  one  line  then  in  existence  along  the 
coast  with  but  few  branches  and  those  far  between.  This  service 
was  first  managed  by  private  interests  under  a  patent  from  William 
and  Mary,  but  afterwards  directly  by  the  English  crown.  The 
fullness  of  time  had  at  length  arrived,  had  brought  the  auspicious 
day,  and  postal  independence  was  born ! 

Patriotic  sentiment  is  not  wanting  in  this  country  of  ours,  and  the 
flag  is  ever  the  object  of  sincere  and  heartfelt  devotion.  The  great 
strides  in  postal  development  from  that  day  to  this  should  make 
the  pulse  of  every  citizen,  particularly  every  postal  employe,  great 
or  small,  quicken  with  civic  pride  as  each  successive  anniversary 
of  our  great  postal  establishment  brings  the  date  to  mind.  Post- 
masters might  well  signalize  the  day  by  conspicious  display  of  the 
flag  under  which  such  tremendous  progress  has  been  made  not  only 
in  postal  affairs  but  in  national  greatness  and  glory. 


List  of  Postmasters  General 


Continental  Congress 


Presidents 
Washington, 


JeflPerson, 
Madison, 
Monroe, 
Jackson, 

Van  Buren, 

Harrison,  W.  H., 

Tyler, 

Polk, 

Taylor, 

Fillmore, 

Pierce, 

Buchanan, 
<( 

Lincoln, 
<< 

Johnson, 
«< 

Grant, 


Hayes, 
<< 

Garfield  and  Arthur, 


Cleveland, 
<< 

Harrison, 
Cleveland, 

<c 

McKinley, 
« 

Roosevelt, 


Taft, 
Wilson, 


Benjamin  Franklin, 
Richard  Bache, 
Ebenezer  Hazard, 

Postmasters  General 
Samuel  Osgood, 
Timothy  Pickering, 
Joseph  Habersham, 
Gideon  Granger, 
Return  J.  Meigs,  Jr., 
John  McLean, 
Wm.  T.  Barry, 
Amos  Kendall, 
John  M.  Niles, 
Francis  Granger, 
Chas.  A.  Wickliffe, 
Cave  Johnson, 
Jacob  Collamer, 
Nathan  K.  Hall, 
Samuel  D.  Hubbard, 
James  Campbell, 
Aaron  V.  Brown, 
Joseph  Holt, 
Horatio  King, 
Montgomery  Blair, 
Wm.  Dennison, 
Alex.  W.  Randall, 
John  A.  J.  Creswell, 
Jas.  W.  Marshall, 
Marshall  Jewell, 
Jas.  N.  Tyner, 
D.  M.  Key, 
Horace  Maynard, 
Thos.  L.  James, 
T.  O.  Howe, 
W.  Q.  Gresham, 
Frank  Hatton, 
Wm.  F.  Vilas, 
Don  M.  Dickinson, 
John  Wanamaker, 
Wilson  S.  Bissell, 
William  L.  Wilson, 
James  A.  Gary, 
Charles  Emory  Smith, 
Henry  C.  Payne, 
Robert  J.  Wynne, 
Geo.  B.  Cortelyou, 
Geo.  Von  L.  Meyer, 
Frank  H.  Hitchcock, 
Albert  S.  Burleson, 


Pennsylvania, 
Pennsylvania, 
New  York, 


State 
Massachusetts, 
Pennsylvania, 
Georgia, 
Connecticut, 
Ohio, 
Ohio, 

Kentucky, 
Kentucky, 
Connecticut, 
New  York, 
Kentucky, 
Tennessee, 
Vermont, 
New  York, 
Connecticut, 
Pennsylvania, 
Tennessee, 
Kentucky, 
Maine, 
Dist.  of  Col. 
Ohio, 

Wisconsin, 
Maryland, 
New  Jersey, 
Connecticut, 
Indiana, 
Tennessee, 
Tennessee, 
New  York, 
Wisconsin, 
Indiana, 
Iowa, 
Wisconsin, 
Michigan, 
Pennsylvania, 
New  York, 
West  Virginia, 
Maryland, 
Pennsylvania, 
Wisconsin, 
Pennsylvania, 
New  York, 
Massachusetts, 
Massachusetts, 
Texas, 


July  26,  1775 
Nov.  7,  1776 
Jan.  28,  1782 

Date  of 
Appointment 
Sept.  26,  1789 
Aug.  12.  1791 
Feb.  25,  1795 
Nov.  28,  1801 
April  11,  1814 
July  1,  1823 
April  6,  1829 
May  1,  1835 
May  26,  1840 
Mar.  8,  1841 
Oct.  13,  1841 
Mar.  6,  1845 
Mar.  8,  1849 
July  23,  1850 
Sept.  14,  1852 
Mar.  7,  1853 
Mar.  6,  1857 
Mar.  14,  1859 
Feb.  12,  1861 
Mar.  9,  1861 
Oct.  1,  1864 
July  25,  1866 
Mar.  5,  1869 
July  7,  1874 
Sept.  1,  1875 
July  12,  1876 
Mar.  13,  1877 
Aug.  25,  1880 
Mar.  8,  1881 
Jan.  5,  1882 
April  11,  1883 
Oct.  14,  1884 
Mar.  7,  1885 
Jan.  17,  1888 
Mar.  6.  1889 
Mar.  7,  1898 
April  4,  1895 
Mar.  6,  1897 
April  22,  1898 
Jan.  15,  1902 
Oct.  10,  1904 
Mar.  7,  1905 
Mar.  4,  1907 
Mar.  6,  1909 
Mar.  5,  1913 


04 


CHAPTER  V 

Miscellaneous  Matters 

General  and  Financial  Summary 
Revenue: 

Entire  receipts,  1916 $312,057,688.83 

Ordinary  postal  revenues 303,232,143 .36 

From  money  order  business 8,130,545 .47 

Postal  savings 695,000. 00 

Expenditures: 

On  account  of  current  year,  1916 $297,637,128.87 

On  account  of  previous  years 8,566,904 .  27 

Total  expenditure $306,204,033. 14 

Excess  of  revenue  over  expenditure,  1916 5,853,655 .69 

Rural  free  delivery ^  1916: 

Cost  per  patron,  1915 $2,060 

Cost  per  patron,  1916 1,966 

Annual  cost,  1916 51,715,616.00 

City  delivery y  1916,  34,000  carriers  : 

City  delivery,  cost  of,  1916 $43,000,000 

Cost  per  capita  (estimated) 1 .75 

Star  route y  1916: 

Annual  cost $7,726,975.00 

Postal  savings: 

Number  of  depositors,  1916 602,937 

Balance  to'bredit  of  depositors,  1916 $86,019,885 .  00 

Money  orders: 

Orders  issued,  1916 121,636,818 

Amount $719,364,950.46 

Stamp  hooks: 

Number  issued,  1916 28,005,930 

Postal  cards: 

Number  issued,  1916 1,047,894,800 

Value $10,784,307.00 

Dead  letters: 

Letter  and  parcels  received,  1916 10,839,890 

Money  value  found  in  undelivered  letters $2,303,119.56 

Net  revenue  from  sale  of  undeliverable  articles ^St665 .  69 

Mail  bags,  1916: 

Number  pouches  available 600,000 

Number  sacks  available 4,000,000 

Cost  of  pouches $0. 70 

Cost  of  catcher  pouches .80 

05 


96  The  American  Postal  Service 

Mail  locks,  1916: 

Number  general  mail  locks  in  use 1,000,000 

Cost,  each  8}^  cents;  to  repair,  3  cents 

Division  of  supplies: 

Appropriation,  blanks,  stationery,  etc.,  1916 $2,500,000. 00 

Special  delivery: 

Amount  expended  for  service,  1916 $633,713 .  21 

Number  of  pieces  delivered  yearly 32,000,000 

Railway  mail  service,  1916: 

Number  of  clerks 19,000 

Number  of  mail  routes 3,500 

Salaries  paid $26,000,000. 00 

Correct  handling  of  mail 99.984  per  cent 

Cost  of  transportation $57,900,000 

Star  routes: 

Number,  1916 11,187 

Length  of  miles 147,167 

Average  cost  per  mile,  length $54 .  16 

Average  cost  per  mile  of  travel $0. 1026 

Annual  cost $7,726,975.00 

Routes  on  which  there  is  found  rate  service 195 

Number  poimds  carried,  1917 23,411,604 

Cost $280,738.08 

Cost  per  hundred  pounds $1 .  20 

Number  of  Star  routes  discontinued  on  account 

of  rural  delivery  service  from  Jan.,   1904,  to 

June,  1917 7,450 

Cost $2,577,728 

Length  in  miles 72,340 

1900  1917 

Number  of  routes 22,834  11,208 

Cost  mile  of  length $19 .  02  $54 .  56 

Cost  mile  of  travel 3 . 83  cents  10. 24  cents 

Cost  per  route $224.81  $723.00 

Registration  and  insurance: 

Total  registration,  paid  and  free 39,236,569 

Amount  collected  fees $3,427,053 .  10 

Insured  parcel  post,  total  pieces 24,936,082 

Total  fees $1,067,192.29 

C.  O.  D.  pieces 6,300,546 

Fees $630,054.60 


Items  of  General  Interest 

Statistics  show  that  although  70  per  cent  of  parcel  post  matter 
comes  from  the  fifty  largest  cities  of  the  country,  these  cities  only 
receive  17  per  cent  of  parcels  for  delivery.  The  smaller  post 
offices  which  receive  65  per  cent  of  the  parcels,  dispatch  only  Oj^ 
per  cent. 


The  annual  readjustment  of  the  salaries  of  presidential  post- 
masters, will,  according  to  the  provisions  in  the  postal  appropria- 
tion bill  for  1917,  be  based  on  the  gross  receipts  for  the  four  quarters 
ending  December  31,  instead  of  March  31,  as  heretofore. 


Eligibles  for  fourth-class  postmaster  places  are  selected  in  the 
order  of  their  civil  service  rating  unless  good  and  sufficient  rea- 
sons to  the  contrary  are  submitted  to  the  Department.  Of  32,000 
of  such  eligibles,  89.5  of  those  whose  names  appeared  first  on  the 
list  were  appointed.  In  8  per  cent  the  second  highest  were  selected, 
and  in  2.5  per  cent,  the  third. 


The  number  of  postmasters  in  the  United  States  are,  according  to 
classes,  567  in  the  first,  2,211  in  the  second,  6,414  in  the  third, 
and  46,742  in  the  fourth  class.     Total,  55,934. 


Custer  County,  Montana,  has  one  of  the  longest  mail  routes  in 
the  United  States.  This  line  runs  from  Miles  City  to  Stacey, 
Olive,  Broaddus,  Boyer,  Graham,  and  Biddle.  It  is  said  to  be 
126  miles  long  and  some  contend  that  it  is  longer. 


The  longest  star  route  in  the  United  States  is  from  Helper  to 
Vernal,  Utah,  116  miles,  and  the  price  the  Government  pays  is 
$38,678.70  per  annum.  The  longest  route  in  Alaska,  is  overland, 
Barrow  to  Kotzbue,  650  miles.  The  shortest  route  is  in  Pennsyl- 
vania, from  Keiser  to  Natalie,  65/100.  There  is  one  route  in  New 
York,  Delhi  to  Bloomville,  8  miles  and  back,  twelve  times  a  week, 
for  which  the  contractor  receives  but  1  cent  per  annum,  no  doubt 
considering  the  advantage  of  carrying  the  mail  as  a  sufficient 
compensation  for  taking  the  job  at  such  a  rate. 

There  are  3,010  counties  in  the  United  States,  984  have  rural 
service  and  steps  are  being  taken  to  see  what  can  be  done  with  the 

97 


98  The  American  Postal  Service 

remainder,  though  any  considerable  progress  in  such  direction  must 
be  slow  as  a  great  deal  of  preliminary  work  must  be  done  before 
any  real  action  can  be  taken. 

That  fractions  count  in  a  great  business  organization  such  as  the 
Post  Office  Department,  will  be  seen  when  it  is  stated  that  post- 
masters during  the  year,  1916,  accounted  for  a  total  of  $131,625.90, 
arising  from  gains  in  fractions  of  a  cent  where  stamped  envelopes 
and  wrappers  were  sold  in  odd  quantities. 


The  annual  per  capita  of  expenditure  for  postage  in  the  United 
States  has  increased  since  1912  from  $2.58  to  $3.04,  and  the 
gross  postal  revenue  from  $246,744,015  to  $312,057,688.  In  the 
fiscal  year  of  1857,  the  first  full  year  in  which  prepayment  of  post- 
age by  means  of  stamps  was  compulsory  under  the  Act  of  March  3, 
1855,  the  per  capita  use  of  stamps  was  but  19  cents.  The  increase 
of  population  in  this  period  has  been  257  per  cent.  Of  postage 
stamp  consumption  4,968  per  cent. 

The  sales  of  postage  stamps  and  other  stamped  paper  for  the 
fiscal  year  1916  aggregated  $277,728,025.20,  an  increase  of 
$21,521,481.49,  the  greatest  sales  and  the  largest  increase  ever 
recorded,  exceeding  the  entire  sales  of  the  fiscal  year  1873,  which 
amounted  to  $20,324,817.50. 


The  Post  Office  Department  was  removed  to  Washington,  D.  C, 
first  Monday  in  December,  1800,  the  seat  of  Government  being 
changed  to  the  District  of  Columbia  at  that  time. 

Over  100  years  ago  the  question  of  patronage  was  already  a 
disturbing  feature  in  the  management  of  public  affairs.  Gideon 
Granger,  of  Connecticut,  Postmaster  General  in  1814,  who  had 
been  an  active  and  efficient  official  in  the  administration  of  Presi- 
dent Madison,  lost  his  place  on  account  of  some  disagreement  with 
the  President,  regarding  the  appointment  of  postmasters.  It  is 
not  clear  whether  he  resigned  or  was  displaced,  but  the  differences 
of  opinion  with  President  Madison  led  to  his  retirement  from  the 
service. 


Joseph  Habersham,  of  Georgia,  Postmaster  General  in  the 
administration  of  General  Washington,  1795,  was  the  first  one  of 


The  American  Postal  Service  99 

the  long  line  of  Postmasters  General  to  sit  in  the  Capital  of  the 
Nation,  he  coming  to  Washington  when  the  seat  of  Government 
was  established  there  in  the  year  1800. 


Post  route  and  rural  delivery  maps  made  by  the  Government 
are  on  a  scale  of  1  inch  to  the  mile.  These  maps  show  all  public 
roads,  rural  routes,  school  houses,  churches,  streams,  etc.,  and 
negative  prints  can  be  purchased  at  35  cents  each  by  application 
to  the  Third  Assistant  Postmaster  General. 


The  number  of  claims  filed  with  the  Solicitor  for  the  Post 
Office  Department  in  1916,  for  the  value  of  postage  stamps  lost 
by  burglary  of  post  offices,  was  690,  amounting  to  $144,440.54, 
as  compared  with  720  claims,  amounting  to  $197,011.88,  filed  in 
1915.  It  will  be  seen  that  while  the  number  of  claims  is  approxi- 
mately the  same,  the  amount  is  $52,571.34  less. 


It  was  the  custom  in  1857  and  prior  thereto,  to  publish  the  names 
of  the  postmasters  in  connection  with  the  post  offices  as  is  indi- 
cated by  an  old  Postal  Guide  published  by  D.  D.  T.  Leech  at  that 
time.  This  was  then  easily  enough  done,  for  the  offices  then  num- 
bered but  13,600  and  changes  were  not  as  frequent  as  at  present. 
The  First  Assistant  Postmaster  General  had  in  his  Bureau  18 
clerks,  the  Second  Assistant,  26,  the  Third  Assistant,  25,  and  the 
Chief  Clerk  of  the  Department,  who  had  charge  of  the  Inspection 
Service,  had  18.  There  were  then  but  11  distributing  offices  in  all 
of  New  England  including  Pennsylvania,  8  in  Virginia,  and  the 
Carolinas,  3  in  Georgia,  4  in  Ohio,  2  in  Illinois,  Missoiu'i,  Ken- 
tucky, Tennessee,  Alabama,  Mississippi,  Louisiana,  Arkansas, 
and  Iowa,  and  1  each  in  Maryland,  Michigan,  Indiana,  Texas,  and 
California.  Aaron  V.  Brown,  of  Tennessee,  was  the  Postmaster 
General.  The  abbreviation  for  Massachusetts  was  then  "M.S." 
as  is  seen  by  an  old  dating  stamp  of  that  period. 


In  1868  money  orders  were  issued  at  the  rate  of  10  cents  for  all 
orders  not  exceeding  $20.  By  act  approved  June  8,  1872,  the  rate 
was  reduced  to  5  cents  for  all  orders  not  exceeding  $10.  By  this 
change  the  Government  lost,  in  the  two  succeeding  years  on  ac- 
count of  this  reduction,  2.84/100  on  every  order  issued  on  the 
5-ceiit  basis,  showing  that  such  rate  at  that  time  was  too  low. 


100  The  American  Postal  Service 

There  were  2,405  rural  carriers  separated  from  the  service  dur- 
ing the  year  1915,  of  which  number  1,228  resigned,  232  died,  and 
618  were  removed.  In  1916,  there  were  2,602  changes,  1,844 
carriers  resigned,  208  died  and  550  were  removed. 


I 


Almost  the  entire  expense  incident  to  the  operation  of  the  rural 
mail  service  is  in  the  compensation  paid  to  carriers.  On  account 
of  their  unusual  duties,  which  include  the  sale  of  stamps  and 
stamped  paper,  registration  of  mail,  transaction  of  money-order 
business,  etc.,  duties  not  required  of  city  delivery  carriers,  it  is 
stated  that  carriers  maintaining  a  motor  vehicle  of  the  capacity 
required  by  the  Department,  who  work  eight  hours  a  day  and  carry 
perhaps  as  much  as  50,000  pieces  of  mail  a  month,  should  receive 
not  less  than  $2,000  per  annum. 


The  total  number  of  miles  of  railroad  in  the  United  States  in 
1830  was  23,  and  634  miles  in  1834,  on  which  mail  covering  78 
miles,  was  carried.  In  1844  the  mileage  had  increased  to  4,377 
and  mail  carried  on  3,714  miles.  In  1854  the  mileage  was  16,720, 
in  1864,  35,085,  in  1874,  70,278,  and  in  1882,  104,813,  with  cor- 
responding increase  of  mail  carriage.  There  are  now  3,479  railroad 
mail  routes  with  a  length  in  miles  of  234,175.13  and  an  annual 
travel  of  502,937,359.43  miles. 


The  decision  of  President  Wilson  to  place  all  postmasters  of  the 
country  under  the  civil  service  law  will  take  away  $16,587,300 
of  public  patronage  from  the  customary  method  of  disposal.  At 
the  first  of  the  year  there  were  567  first-class  offices  in  the  country 
paying  salaries  ranging  from  $3,000  to  $8,000,  or  a  total  of  $2,014,- 
300.  Included  in  this  list  were  the  post  offices  in  New  York, 
Chicago,  St.  Louis,  Boston,  San  Francisco,  Philadelphia,  Balti- 
imore,  Indianapolis,  Kansas  City,  Detroit,  Cleveland,  Toledo 
Columbus,  Atlanta,  and  other  large  cities.  There  were  2,213 
second-class  offices,  salaries  ranging  from  $2,000  to  $2,900,  or  a 
total  of  $5,235,500.  Third-class,  7,437  paying  from  $1,000  to 
$1,900  yearly,  or  a  total  of  $9,337,500.  Fourth-class  postmasters 
are  already  under  the  civil  service  law. 


From  1816  to  1845,  a  letter  carried  not  over  30  miles  paid  6}4 
cents,  over  80  and  under  150  miles,  paid  123^  cents,  and  if  the 


The  American  PosxAti  SERvicB "    '.   :  ^       iOX 

letter  weighed  an  ounce,  four  times  these  rates  were  charged.  In 
1851  the  3-cent  rate  was  reached  for  distances  less  than  3,000  miles, 
and  in  1853  distance  limit  was  abolished  and  the  rate  made  uni- 
form. This  system  led  to  a  deficiency  in  1860  amounting  to 
over  $10,000,000.  The  restriction  of  service  during  the  Civil 
War,  it  being  then  confined  to  the  densely  populated  States  of  the 
north,  allowed  a  surplus  to  appear  amounting  in  1863  to  $2,800,000. 
After  the  war,  deficiencies  became  the  rule  for  many  years,  di- 
minishing, however,  from  year  to  year  as  the  country  became  more 
thickly  settled. 


By  official  order  it  is  stated  that  the  Department  commends 
and  will  give  record  credit  marks  to  rural  carriers  whose  efforts 
result  in  greater  quantities  of  farm  products  being  transported 
through  the  mails. 

Notwithstanding  the  growth  of  the  service  together  with  the 
added  work  of  the  postal  savings  system  and  the  parcel  post,  the 
Department  service  in  Washington  has  been  reduced  by  200,  with 
a  resultant  saving  of  over  $166,000  per  annum  because  of  the 
adoption  of  methods  of  operation  which  develop  efficiency,  and 
permit  the  changes  so  necessary  to  progressive  improvement. 


It  is  estimated  that  the  cost  of  extending  rural  free  delivery 
service  throughout  the  entire  country  will  be  $100,000,000, 
additional.  This  seems  like  a  vast  sum  for  one  form  of  public 
service,  but  country-wide  extension  is  also  a  vast  proposition  and 
its  benefits  would  be  so  immeasurably  great  if  it  could  be  accom- 
plished, that  the  nation  might  consider  the  money  well  spent 
for  such  a  purpose. 

It  may  not  be  generally  known  that  fully  80  per  cent  of  all 
civil  service  employees  of  the  Government  are  in  one  way  and 
another  connected  with  the  postal  service.  This  shows  how  vast 
and  widely  extended  this  service  must  be  and  how  intimately 
connected  with  the  public  welfare. 


The  objectionable  use  to  which  window-delivery  service  in  the 
cities  of  the  country  may  be  subjected,  has  led  to  an  active  and 
vigorous  campaign  by  the  Department  to  check  the  possibility  of 


iOi  ^  ^      The  American  Postal  Service 

making  this  public  accommodation  a  channel  for  unworthy  pur- 
poses, and  this  active  effort  has,  it  is  believed,  been  productive  of 
great  good  in  such  direction. 


The  danger  to  life  and  limb  by  service  in  postal  cars,  to  which 
attention  is  called  elsewhere,  has  led  to  increased  effort  to  provide 
cars  of  all-steel  construction  for  better  protection  in  this  naturally 
hazardous  service.  One  thousand  of  this  pattern  have  within  a 
recent  period  been  added  to  those  already  in  use  and  a  liability 
law  enacted  for  the  relief  of  employes.  The  risks  which  must 
be  taken  in  this  service  demand  that  the  best  possible  protection 
that  can  be  given  should  be  afforded  that  the  dangers  of  the  rail 
may  be  lessened  to  the  least  degree. 


The  mails  of  the  United  States  were  first  carried  on  steamboats 
from  one  post  town  to  another  in  1813,  the  Government  paying 
not  over  3  cents  for  each  letter  and  1  cent  for  newspapers. 


Railroads  were  declared  post  routes  by  act  of  Congress  in  July, 
1838,  and  the  mails  carried  thereon. 


This  administration  is  certainly  doing  all  it  can  to  save  money  in 
various  directions.  An  opportunity  was  presented  in  the  motors 
returned  to  the  Department  for  repair.  These  motors  have  been 
neglected  in  many  instances  through  indifference  or  lack  of 
mechanical  knowledge  on  the  part  of  postal  employes.  Each 
returned  motor  is  now  given  careful  examination  by  an  expert 
electrician  and  from  the  knowledge  thus  gained,  additional 
instructions  as  to  proper  handling  of  this  class  of  equipment  will 
be  sent  out.  The  same  is  true  of  old  cancelling  machines  which 
have  lain  idle  for  a  number  of  years  but  by  the  adoption  of  newly 
designed  mechanical  attachments  have  been  converted  into 
serviceable  equipment  at  a  nominal  cost. 


The  increase  in  expenditure  for  rural  delivery  by  periods  was  as 
follows:  1897,  first  year,  $14,840.  Third  year,  1900,  increased  to 
$420,433.  In  1905,  to  $20,864,885.  In  1910,  to  $36,914,769, 
and  in  1916  to  $51,715, 616. 


Revision  of  the  rural  delivery  service  to  eliminate  duplication, 
unnecessary  retracing  and  unjustifiable  special  facilities  was  con- 


The  American  Postal  Servicb  lOS 

ducted  in  S29  counties  in  twenty-nine  States  during  the  fiscal  year 
of  1916,  at  a  reduction  in  cost  of  $1,359,162.  This  saving  with 
that  made  in  readjustments  in  the  fiscal  year  of  1915,  made  it 
possible  to  grant  all  applications  for  new  service  and  extensions 
where  the  requirements  have  been  met.  It  is  estimated  that  the 
whole  territory  now  covered  by  rural  service,  with  such  necessary 
revision,  could  be  operated  at  a  reduction  in  cost  of  $3,500,000. 


The  commercial  shortage  in  the  paper  industry  is  being  to  some 
extent  remedied,  at  least  so  far  as  the  Post  Office  Department  can 
aid  and  assist,  by  urging  the  cooperation  of  every  employe  in  the 
conservation  of  the  waste  paper  in  all  of  the  larger  post  offices  of 
the  country.  Paper-baling  machines  are  now  supplied  to  the  post- 
masters for  this  purpose,  which  not  only  contributes  to  economy 
in  use  and  adds  to  the  visible  supply,  but  is  a  matter  of  revenue  as 
well,  for  what  was  formerly  regarded  as  waste,  and  destroyed,  is 
now  made  a  matter  of  profit. 


The  numberless  curiosities  gathered  from  unmailable  and  unre- 
claimed articles  which  found  their  way  into  the  Dead  Letter 
Office  from  time  to  time,  together  with  the  many  articles  of  postal 
interest  to  those  who  delight  in  antiquities — the  old  mail  coaches 
used  in  the  west,  the  dog  sledges  used  in  the  Alaskan  service,  the 
carriers  in  uniform  of  all  nations  and  the  many  features  of  interest 
too  tedious  to  enumerate  here  and  which  formed  a  veritable 
collection  of  postal  wonders  and  delighted  thousands  of  people 
when  gathered  for  display  purposes  on  the  first  floor  of  the  Post 
Office  Department  are  now,  in  part  at  least,  in  the  National 
Museum  at  Washington  and  are  well  worthy  a  visit  when  people 
come  to  the  Capital  City  on  a  sight-seeing  tour. 


I 


The  period  of  greatest  activity  in  extension  and  general  progress 
of  Rural  Delivery  was  from  1900  to  1905,  the  appropriations  run- 
ning from  $450,000  in  1900  to  $21,116,000  in  1905.  On  February 
1,  1902,  the  rural  letter  carriers  were  placed  imder  the  civil  service 
by  executive  order. 

Salary  increases  in  the  Rural  Delivery  service  have  been  as  fol- 
lows: August  1,  1897,  $300;  July  1,  1898,  $400;  July  1,  1900, 
$500;  March  1,  1902,  $600;  July  1,  1904,  $720;  July  1,  1907, 
$900;  July  1,  1911,  $1,000;  September  30,  1912,  $1,100;  July  1, 
1914,  $1,200. 


Some  Old  Laws  and  Regulations 

NOTE. — In  some  old  postal  publications  dating  back  to  1843  and  1857,  a 
number  of  curious  laws  and  regulations  appear  which  may  be  of  interest  to 
people  who  delight  in  antiquarian  research.  Where  no  date  or  Act  of  Congress 
is  mentioned  in  the  paragraphs  following,  they  refer  to  laws  or  regulations 
prior  to  1843  or  between  that  date  and  1857.  These  items  are  published 
simply  as  indicating  the  peculiar  views  and  opinions  of  the  time,  and  are 
not  to  be  taken  as  an  official  guide  for  the  present  day,  for  changes  may  have 
been  made  in  some  cases,  amendments  in  others,  some  superseded  by  later 
enactment  and  all  more  or  less  affected  by  later  conditions  and  needs.  No 
attention  can  therefore  be  given  them  except  as  phases  of  other  days,  unless 
indeed  existing  laws  and  regulations  make  them,  or  some  of  them  still  opera- 
tive and  in  force,  which  may  be  determined  by  consulting  the  laws  and  regula- 
tions of  today. 


To  Senators  and  Members  of  Congress,  the  franking  privilege 
was  originally  limited  to  2  ounces  in  weight,  excess  to  be  paid  for. 
Act  of  March  3,  1825. 


The  sum  of  4  cents  was  allowed  for  advertising  each  letter  remain- 
ing unclaimed  in  a  post  office  if  published  in  more  than  one  news- 
paper. Section  35,  Act  July  2,  1836,  Act  of  1825,  Section  26, 
allowed  but  2  cents  for  each  letter,  published  three  times. 


Newspaper  publishers  could  have  printed  or  written  notice  sent 
to  subscribers  stating  the  amount  due  on  subscription,  which  shall 
be  attached  to  paper  and  the  postmaster  shall  charge  for  such  notice 
the  same  postage  as  for  a  newspaper.     Act  of  1825. 


No  ship  or  vessel  arriving  at  any  port  in  the  United  States  shall 
make  entry  or  break  bulk  until  the  mails  are  delivered  to  the  post- 
master by  the  master  of  such  ship  or  vessel.  Penalty  was  $100. 
Act  of  1825. 


Section  1,  Act  of  March  2,  1847,  permitted  deputy  postmasters 
whose  compensation  for  last  preceding  year  did  not  exceed  $200 
to  send  letters  written  by  himself,  and  to  receive  through  the  mail 
written  communications  addressed  to  himself  in  his  private  busi- 
ness which  shall  not  exceed  }/2  ounce,  free  of  postage.  Regulation 
293,  allowed  every  deputy  postmaster  to  frank  and  receive  free 
all  his  letters,  public  and  private,  subject  to  the  J^-ounce  weight. 
This  privilege  did  not  extend  to  his  wife  or  any  other  member 
of  the  family. 

104 


The  American  Postal  Service  105 

Paid  letters  might  be  forwarded  by  private  opportunity  to 
places  where  no  post  offices  were  established. 


Postmasters  were  not  allowed  to  give  credit  for  postage,  but  if  it 
was  done,  letters  addressed  to  such  persons  on  which  postage  was 
paid  or  tendered  by  him  could  not  be  detained. 


Act  of  August  31,  1852,  allowed  letters  enclosed  in  stamped 
envelopes  to  be  sent  out  of  the  mail. 


By  joint  resolution  of  February  20,  1845,  the  Postmaster 
General  could  make  contracts  with  railroads  for  carrying  the  mail 
without  advertising  for  bids  as  was  then  the  custom. 


The  postmaster,  or  one  of  his  assistants,  was  required,  before 
office  was  swept  or  otherwise  cleaned  of  rubbish,  to  collect  and 
examine  all  waste  paper  in  order  to  guard  against  possibility  of 
loss  of  letters  or  mail  matter  by  falling  to  the  floor  or  mingling  with 
waste  paper.  Observance  of  rule  was  strictly  enjoined,  its  viola- 
tion constituted  a  grave  offense.  They  were  also  admonished  in 
mailing  letters  or  packets  to  use  all  wrapping  paper  fit  to  be  used 
again,  and  the  sale  of  such  paper  was  strictly  forbidden. 


As  late  as  1843,  postmasters  were  officially  known  as  "Deputy" 
postmasters  following  the  old  custom  from  the  beginning. 


If  a  newspaper  began  to  arrive  at  the  office  in  the  course  of  the 
post  office  quarter,  deputy  postmasters  should  demand  postage 
in  advance  of  the  subscriber  up  to  the  end  of  that  quarter.  At  the 
end  of  a  quarter,  they  might  refund  postage  on  so  many  of  the 
newspapers  as  had  not  arrived  during  the  quarter.  Advance 
payment  of  postage  was  invariably  demaded  and  unless  compHed 
with  no  papers  should  be  delivered  even  though  the  postage  was 
tendered  on  them  singly.     (Act,  1825.) 


Carriers  were  required  to  receive  and  convey  a  letter  (and  the 
money  for  its  postage  when  tendered)  if  delivered  more  than  a  mile 
from  a  post  office  and  to  hand  it  with  the  money,  if  paid,  into  the 
first  post  office  at  which  carrier  arrived.  A  penalty  of  $50  attached 
on  failure  to  do  so.     (Act  of  1825). 


106  The  American  Postal  Service 

Postmasters  were  forbidden  to  show  any  preference  between  one 
person  and  another  in  the  arrival  or  delivery  of  mail  by  the  unlaw- 
ful detention  of  any  letters,  packages,  pamphlet  or  newspaper. 
A  fine  not  exceeding  $500  was  the  penalty  and  the  person  was  for- 
ever prohibited  from  serving  as  postmaster.    (Act  of  July  2,  1836.) 


A  ferryman  who  by  wilful  neglect  or  refusal  to  transport  mail 
across  a  ferry  thereby  delaying  the  same,  was  to  be  fined  $10  for 
every  ten  minutes  of  such  delay.     (Act  of  March  3,  1825.) 


Letter  carriers  employed  at  such  post  offices  as  the  Postmaster 
General  may  direct,  were  allowed  to  collect  2  cents  for  each  letter 
they  delivered.  For  letters  lodged  at  the  post  office  by  direction 
of  the  individual,  the  postmaster  was  to  receive  1  cent;  news- 
papers and  pamphlets  3^  cent;  letters  received  by  carrier  for  deposit 
in  a  post  office,  2  cents,  to  be  paid  to  the  postmaster  for  a  fund 
for  compensation  of  carriers.  This  was  known  as  the  "penny 
post"  and  was  in  vogue  until  the  day  of  free  delivery. 


Section  38,  Act  of  March  3,  1825,  provided  that:  Any  person 
confined  in  jail  on  any  judgment  in  a  civil  case  obtained  in  behalf 
of  the  Post  Office  Department,  who  makes  affidavit  that  he  has  a 
claim  against  the  General  Post  Office,  not  allowed  by  the  Post- 
master General,  and  shall  specify  such  claim  in  the  affidavit,  that 
he  could  not  be  prepared  for  trial  by  lack  of  evidence,  the  court 
being  satisfied  in  those  respects,  may  be  granted  a  continuance 
by  the  court  until  the  next  term,  and  the  Postmaster  General 
authorized  to  have  such  party  discharged  from  imprisonment 
if  he  has  no  property,  of  any  description,  but  such  release  shall 
not  bar  a  subsequent  execution  against  the  property  of  the 
defendant. 


A  postmaster  was  not  allowed  to  receive  free  of  postage,  or  frank 
any  letter  or  packet,  composed  of,  or  containing  anything  other 
than  paper  or  money.     (Sec.  36;  Act  of  July  2,  1836.) 


According  to  the  Postal  Laws  and  Regulations  of  1843,  only  a 
free  white  person  could  carry  the  mail  and  any  contractor  who 
employed  or  permitted  any  other  than  a  free  white  person  to  con- 
vey mail  was  subject  to  a  penalty  of 


The  American  Postal  Service  107 

At  post  offices  where  the  mail  arrived  between  9.00  o'clock  at 
night  and  5.00  in  the  morning,  the  postmaster  was  allowed  a  com- 
mission not  to  exceed  50  per  cent  on  the  first  $100  collected  in  any 
one  quarter  (Act  of  March  3,  1825),  but  the  commission  was 
afterwards  increased  to  70  per  cent.  (Act  of  June  22,  1854.) 
No  allowance  on  this  account  was,  however,  to  be  made  unless  ac- 
companied by  a  certificate  signed  by  postmaster  upon  a  pre- 
scribed form. 


Post  riders  and  other  carriers  of  mail  collecting  way  letters  on 
which  postage  had  been  paid,  were  allowed  1  cent  each  for  such 
service  by  the  postmaster  when  such  letters  were  delivered  at  the 
post  office. 

"Express  mail  service"  could  be  established  by  the  Postmaster 
General  if  deemed  expedient,  for  the  purpose  of  conveying  slips 
from  newspapers  in  lieu  of  exchanges,  or  letters,  except  such  as 
contained  money,  not  exceeding  J^  ounce  in  weight,  and  public 
dispatches,  marked  as  above,  at  triple  rates  of  postage. 


Employment  of  extra  clerks  was  permitted  and  authorized  when 
actually  needed  to  answer  some  information  calle  1  for  by  Con- 
gress. Copyists,  etc.,  were  paid  at  the  rate  of  $3  a  day;  other 
service  $4  when  actually  and  necessarily  emplo  cd.  (Act  of 
August  26,  1842.) 

Section  442,  Chapter  60,  says:  "Every  deputy  postmaster  will 
consider  himself  the  Sentinel  of  the  Department  in  regard  to  its 
affairs  in  his  immediate  vicinity;  and  he  will  carefully  observe  and 
promptly  report  to  it  everything  tending  to  affect  its  interests  or 
injure  its  reputation." 

Section  445  says:  "If  a  mail  carrier  having  the  mail  in  charge 
becomes  intoxicated,  the  Deputy  Postmaster  will  instantly  dis- 
miss him,  employ  another  at  the  expense  of  the  contractor  and 
report  the  facts  to  the  Department. 


Section  382,  Chapter  53.  "  Deputy  postmasters  are  in  the  habit 
of  settling  their  printer's  bills  only  once  in  two  or  three  years  and 
then  forwarding  the  advertising  accoimt  for  several  quarters  at 


108  The  American  Postal  Service 

once.    This  must  not  be  done.    All  such  accounts  must  be  for- 
warded with  the  returns  to  which  they  belong." 


Section.  379.     "No  allowance  for  furniture  will  be  made  to  any 
post  oflSce  when  the  net  proceeds  do  not  amount  to  $20  per  year. 


Act  of  1825,  Section  39,  and  Act  of  1863,  Section  41,  says  the 
carriers  of  the  "United  States  City  Dispatch  Post''  in  New  York, 
and  other  city  dispatch  posts,  wherever  established,  are  authorized 
to  charge  and  collect  3  cents  on  each  letter  deposited  in  any  part  of 
the  city,  and  delivered  at  another. 


Act  of  1825,  Section  38,  states  a  deputy  postmaster  will  not 
open,  nor  suffer  to  be  opened,  any  packet  of  newspapers,  not 
addressed  to  his  oflfice,  under  a  penalty  of  $50.  A  penalty  of  $20 
was  to  be  imposed  on  any  person  not  authorized  to  open  mails, 
who  shall  open  any  packet  of  newspapers  not  directed  to  himself. 


Regulations  324  and  325  says  that  the  franking  privilege  travels 
with  the  person  possessing  it  and  can  be  exercised  in  but  one  place 
at  the  same  time,  and  prohibited  deputy  postmasters  or  other 
privileged  persons  from  leaving  their  frank  behind  them  upon 
envelopes  to  cover  public  or  private  correspondence  in  their 
absence. 


Queer  Collection  in  Holiday  Mail 

Some  years  ago,  the  Cincinnati,  Ohio,  post  office,  gave  an  ac- 
count of  the  queer  combinations  and  collections  of  articles  found 
loose  in  the  mails  at  the  Christmas  season  owing  to  the  carelessness 
of  senders.  These  articles  vary  from  value  to  worthlessness,  utility 
to  uselessness.  Money,  jewelry,  articles  of  dress,  dainty  ribbons 
to  choice  silk  patters,  tableware,  and  even  to  "corn  shellers." 
Many  of  the  articles  named  were  doubtless  in  combinations  and 
sent  to  one  address,  but  being  carelessly  wrapped  or  addressed, 
they  could  not  be  assembled  for  identification  or  identified  singly 
for  delivery  in  the  great  majority  of  cases.  The  list  is  given 
for  the  benefit  of  readers  who  delight  in  curious  things.  These 
articles  were  held  for  a  week  for  possible  identification  and  then 
sent  to  the  Dead  Letter  Office.  No  attempt  has  been  made  at 
classification  as  more  interest  is  excited  by  taking  them  as  they 


The  American  Postal  Service  109 

come.  Some  of  the  combination  must  have  been  very  amusing. 
List  is  as  follows: 

A  cabinet  photograph,  pair  rubber  sleeves,  2  silver  quarter-dol- 
lars, sewing  machine  shuttle,  piece  of  white  swiss  goods,  2  dimes,  a 
brass  key,  package  common  tea  spoons,  5  cents  and  8  childs* 
cards  from  Beamsville,  Ont.,  for  Mrs.  J.  Carl,  Tallassee,  Ala., 
and  sent  to  the  postmaster  of  that  place  for  delivery.  Two  un- 
stamped letters,  one  to  Mrs.  Rebecca  Washington,  the  other  to 
Wm.  Cummings;  Q5  cents,  plated  butter  knife,  gold  plated  lead 
pencil,  silver  quarter,  2  combination  tools,  2  pen  knives,  lot 
photographs,  pension  affidavit  of  Jasper  Acres,  pair  knit  stockings, 
6  books,  false  mustaches,  pearl  pen  holder,  box  of  pills,  patent 
corn  sheller,  2  electrotype  plates  of  "Sellers  Cough  Syrup,"  yel- 
low and  purple  knit  hoods.  Christmas  cards,  studs,  2  small  drills, 
peacock  feather,  fountain  pen,  ladies  brooch,  butter  knife,  felt  soles, 
letter  in  match  box  addressed  to  postmaster  Berlin,  sugarspoon, 
celluloid,  ring,  sleeve  buttons,  25  cents,  hair  switch,  open  letter  to 
J.  Lyon,  Red,  Ky.,  Ind.,  which  was  delivered  to  him. 

Two  pen  knives,  dime,  box  violin  strings,  ladies  fashion  bazaar, 
bottle  "Fruit  Laxative,"  plain  gold  ring,  ear  rings,  breast  pin,  and 
thimble  (snide) ,  paper  needles,  book  "Bad  Boy's  diary,"  pencil, 
large  pen  knife,  70  cents,  unstamped  letter  to  Adelaide  Long, 
iron  hook,  toy  knitting  machine,  2  tops  of  sleeve  buttons,  hair 
chain,  lot  crayons,  chalk,  letter  to  P.  O.  Wickley,  Augusta,  Me., 
unstamped,  containing  70 cents  in  stamps,  child's  book  "The  Proud 
Little  Lady,"  magic  lantern,  watch  chain,  masonic  charm,  3^- 
dozen  teaspoons,  paper  needles,  childs  mits,  comforter  and  doll, 
2  harmonicons,  Bible,  child's  gingham  dress,  2  sticks  of  candy. 
A  wallet  containing  a  gold  double  eagle,  $20  bill,  9  $5  bills,  3  $10 
bills,  found  by  F.  A.  Montague,  in  a  pouch  from  Lewisburg,  Tenn., 
and  returned  to  postmaster  of  that  town  to  be  delivered  upon 
receipt  to  the  sender. 

Gold  plated  pencil,  unaddressed  envelope,  containing  pair  of 
lisle  thread  gloves,  black  and  white  stamped  ribbon,  unin- 
closed  letter  containing  $1  marked  from  "Joe  to  Gus."  two-cent 
piece,  gold  and  jet  pencil  holder,  butter  knife,  tidy,  white  apron, 
pair  baby  socks,  blank  check  book,  dominoes,  black  cord  and 
tassel,  red  worsted  shawl,  tidy.  Wooden  box,  lot  of  candy, 
assortment  of  rubber  sheep.  Letter  from  R.  MacFeeley,  Wash- 
ington, D.  C,  to  Capt.  A.  M.  Corliss,  without  envelope,  one  cent. 


110  The  American  Postal  Service 

German  picture  cards,  meerschaum  cigar  holder,  woman's  head 
design.  Three  plain  rings,  four  watch  charms,  compass,  horseshoe 
cigar  cutter,  two  lanterns,  pearl  handled  table  knife,  billiard  ball, 
silver  quarter  sewed  in  some  knit  work,  whisk  broom,  a  false 
tooth,  two  black  ties,  three  New  Year  cards,  hair  switch,  curry- 
comb, vanity  case,  stuffed  Aunt  Dinah,  game  "Old  Maid,"  box 
Mason's  blacking  with  brush,  j&ddle  strings. 

Feeding  the  Cats 

It  is  perhaps  not  generally  known  that  cats  are  kept  and  fed  at 
the  public  expense  in  some  of  the  larger  post  offices  of  the  country. 
Some  years  ago  (and  it  may  still  be  the  custom)  an  appropriation 
of  from  $80  to  $100  was  annually  made  for  this  purpose  for  the 
benefit  of  the  New  York  post  office,  and  $30  to  $40,  spent  for  like 
service  at  the  Philadelphia  office.  In  an  article  in  the  Philadelphia 
Record  it  was  stated  that  a  man  in  that  city  had  a  contract  for 
keeping  these  feline  employes  of  the  office  in  provisions,  and  it 
was  also  mentioned  that  there  are  about  1,000  of  these  useful 
domestic  animals  in  the  employ  of  the  Post  Office  Department 
and  they  are  paid  for  their  services  by  food  and  shelter.  It  is 
estimated  that  about  $1,000  per  annum  is  expended  in  this  way 
at  the  principal  post  offices  and  large  public  buildings  of  the 
country. 

Ferrets  are  also  often  employed  for  this  purpose  in  the  great 
public  buildings  in  Washington  when  the  rodents  get  too  numerous 
and  damage  to  papers  and  files  likely  to  occur.  The  common 
practice  of  eating  lunches  in  these  government  buildings  tends  to 
the  spread  of  this  annoying  condition  and  the  cats  in  the  public 
service  are  held  to  be  a  useful  and  necessary  convenience  in  hunting 
down  and  interfering  with  the  nibbling  propensities  of  this  pest  to 
domestic  as  well  as  public  economy. 

A  Couple  of  Distinguished  Canines 

Mention  is  made  in  another  article  of  the  employment  of  cats 
in  post  offices  as  "mousers,"  and  they  doubtless  contribute  their 
share  towards  public  benefit.  The  dog,  man's  most  faithful  friend, 
so  eulogized  in  song  and  story,  has  also,  it  seems,  his  part  in 
public  interest  and  concern.  For  many  years  the  postal  clerks 
of  the  country  paid  great  attention  to  "Owney"  an  adventurous 
terrier  dog  who  attached  himself  to  the  Railway  Service  and  whose 


The  American  Postal  Service  111 

exploits  as  a  traveler  and  companion  on  many  postal  trips  and  rmis 
made  him  a  familiar  and  welcome  acquaintance  wherever  he  estab- 
lished his  temporary  domicile.  His  faithfulness,  friendship  and 
fellowship,  in  his  way  of  showing  it,  was  the  topic  of  discourse  when 
he  made  his  occasional  visits  and  his  praises  were  told  in  many  a 
newspaper  story  and  he  wore  the  numerous  decorations  and 
medals  with  which  he  was  bedecked,  the  gift  of  admiring  friends, 
with  all  the  dignity  and  grace  becoming  a  dog  so  honored  and 
esteemed. 

"Owney"  had  an  humble  imitator  and  counterpart  in  canine 
sagacity  and  wisdom  in  a  dog  at  Mount  Carmel,  Pa.,  whose  watch- 
ful guardianship  of  the  office  mail  and  general  fidelity  won  him 
such  deserved  recognition  at  home  as  a  remarkable  example  of 
what  a  dog  can  be  taught  to  do,  that  his  fame  spread  abroad,  was 
brought  to  public  attenion  at  Washington  and  the  post  office  peo- 
ple awarded  him  special  recognition  in  the  shape  of  a  handsome 
collar,  raised  by  subscription.  He  got  his  name  in  the  news- 
papers, but  whether  all  this  honor  and  glory  turned  his  head 
and  his  attention  elsewhere,  or  some  evil-minded  person,  jealous 
of  the  costly  collar  he  wore,  appropriated  it  and  the  dog  also,  is 
not  known,  but  after  being  thus  honored  and  decorated  and  set 
apart  from  the  rest  of  the  canine  fraternity,  this  famous  dog 
suddenly  disappeared  and  was  never  heard  of  again. 

Soldier's  Sister  a  Mail  Carrier 
President  Wilson  has  issued  an  executive  order  allowing  the 
Postmaster  General  to  appoint  as  temporary  rural  mail  carrier, 
during  the  absence  of  the  regular  carrier  on  military  duty,  the 
person  on  whom  the  support  of  the  dej>endents  of  the  regular 
carrier  devolves,  without  regard  to  civil  service  requirements,  if 
the  substitute  is  found  competent.  The  first  appointment  under 
the  order  is  that  of  Miss  Edith  Strand,  of  Princeton,  111.,  whose 
brother  was  called  into  the  military  service,  leaving  her  to  care 
for  the  family. 

Notice 
In  a  pamphlet  giving  a  brief  history  of  the  postal  service,  com- 
piled by  Mr.  Stanley  I.  Slack  during  the  administration  of  Post- 
master General  Charles  Emory  Smith  from  which  a  few  general 
facts  are  taken  relating  to  our  early  postal  history,  appears  a  state- 
ment that  use  had  been  made  of  the  following  works — ^Journal 


112 


The  American  Postal  Service 


kept  by  Hugh  Finlay,  1773-74,  Brooklyn,  1867.  Joyce  "History 
of  the  British  Post  Office;  The  Early  History  of  the  Colonial  Post 
Office  by  Mary  E.  Wooley;  Leech  and  Nicholson's  History  of  the 
Post  Office  Department,  Washington,  1879,  and  the  contributions 
of  the  Postal  History  of  the  United  States  by  C.  W.  Ernst  of  Bos- 
ton in  Vols.  XX,  1895,  and  XXI,  1896;  Journal  of  the  Postal 
Union."  As  none  of  these  authorities  have  been  consulted  in  the 
publication  of  this  work,  or  access  had  to  any  of  them  for  such 
purpose,  this  explanation  is  made  so  that  if  anything  from  the 
above  mentioned  publications  appears  herein,  drawn  from  Mr. 
Slack's  pamphlet,  the  necessary  acknowledgment  might  hereby 
be  made  and  due  credit  given. 


INDEX  TO   ITEMS  OF  INTEREST 


Annual  readjustment  salaries,  93 

Claims  for  stamps  lost  by  bur- 
glary, 95 

Credit  marks  for  rural  carriers,  97 

Cost,  country-wide  extension  rural 
delivery,  97 

Difference  in  dispatch  parcel  post 
matter,  93 

Department  force  at  Washington 
reduced,  97 

Eligibles,  fourth-class  postmast- 
ers, 93 

Expenditure  rural  delivery  by  pe- 
riods, 98 

First  Postmaster  General  to  sit  at 
Capital,  94 

Gain  to  Department  in  fractions  of  a 
cent,  94 

Increase  rural  carriers'  pay,  96 

Longest  mail  route,  93 

Longest  star  route,  93 

Loss  to  Government  by  low  money 
order  rate,  95 

Mails  first  carried  on  steamboats,  98 

Number  of  counties  having  rural  ser- 
vice, 93 

Names  of  postmasters  mentioned  in 
1857.  95 


Number  of  postmasters  affected  by 

order  of  President,  96 
Per    capita    expenditure    for    post- 
age, 94 
Patronage  100  years  ago,  94 
Period     of     greatest     activity,  rural 

service  99 
Post  routes,  rural  delivery  maps,  95 
Postal     employes     in     public     serv- 
ice, 97 
Paper  baling  machines,  99 
Postal   curiosities   in   National    Mu- 
seum, 99 
Postmasters  by  classes,  93 
Postage  stamp  sale,  1916,  94 
Railroads  declared  post  routes,  98 
Rural  carriers  separated   from  serv- 
ice, 1915-1916,  96 
Rates  of  postage,  1816  to  1853,  96 
Revision  of  rural  service,  98 
Shortest  postal  route,  93 
Salary  increases,  rural  carriers  99 
Saving  money  by  motor  repairs,  98 
Sale  postage  stamps,  1916,  94 
Total  railroad  mileage,  1830,  96 
Window  delivery  service,  97 
When  the  Department  was  moved  to 
Washington,  94 


I 


RETURN     CIRCULATION  DEPARTMENT 

TO— ^^      202  Main  Library 

LOAN  PERIOD  1 
HOME  USE 

2                      : 

4 

5                                (. 

5 

ALL  BOOKS  MAY  BE  RECALLED  AFTER  7  DAYS 

1  -month  loans  moy  be  renewed  by  colling  642-3405 

6-month  loans  may  be  recharged  by  bringing  books  to  Circulation  Desk 

Renewals  and  recharges  may  be  made  4  days  prior  to  due  dote 

DUE  AS  STAMPED  BELOW 

APR  31 19R^ 

KET'D      APR      2  19 

11 

S^f^TONfLL 

rrn  0  7  IQQC; 

FEB  L  '  ™^ 

U.  C  BcRKcLcT 

MAY  0  S  /^Mb 

1 1  r*   wrvyx/vx  r:v 

UNIVERSITY  OF  CALIFORNIA,  BERKELEY 

FORM  NO.  DD6,  60m,  12/80        BERKELEY  CA  94720 

®$ 


I   w      C^\J  I  v^v-y 


